Existing law generally sets forth prima facie speed limits, unless changed or otherwise authorized by law. Existing law permits local authorities to set prima facie speed limits on the basis of an engineering and traffic survey, as defined, if the different speed limit is necessary to facilitate the orderly movement of traffic and is reasonable and safe. Existing law authorizes the City of Norco and the common interest development of Orange Park Acres, when conducting an engineering and traffic survey, to consider equestrian safety, in addition to the specified factors set forth.

This bill would authorize the Cities of Burbank, Glendale, and Los Angeles when conducting an engineering and traffic survey of the public streets within the boundaries of the Rancho Master Plan Area, the Horse Overlay Zone, and the Sylmar Community Plan Area and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area, respectively, to each consider equestrian safety, in addition to the specified factors set forth.

This bill would make legislative findings and declarations as to the necessity of a special statute for the Cities of Burbank, Glendale, and Los Angeles.

Existing law generally sets forth prima facie speed limits, unless changed or otherwise authorized by law. Existing law permits local authorities to set prima facie speed limits on the basis of an engineering and traffic survey, as defined, if the different speed limit is necessary to facilitate the orderly movement of traffic and is reasonable and safe. Existing law authorizes the City of Norco and the common interest development of Orange Park Acres, when conducting an engineering and traffic survey, to consider equestrian safety, in addition to the specified factors set forth.

This bill would authorize the Cities of Burbank, Glendale, and Los Angeles when conducting an engineering and traffic survey of the public streets within the boundaries of the Rancho Master Plan Area, the Horse Overlay Zone, and the Sylmar Community Plan Area and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area, respectively, to each consider equestrian safety, in addition to the specified factors set forth.

This bill would make legislative findings and declarations as to the necessity of a special statute for the Cities of Burbank, Glendale, and Los Angeles.

Existing law generally sets forth prima facie speed limits, unless changed or otherwise authorized by law. Existing law permits local authorities to set prima facie speed limits on the basis of an engineering and traffic survey, as defined, if the different speed limit is necessary to facilitate the orderly movement of traffic and is reasonable and safe. Existing law authorizes the City of Norco and the common interest development of Orange Park Acres, when conducting an engineering and traffic survey, to consider equestrian safety, in addition to the specified factors set forth.

This bill would authorize the Cities of Burbank, Glendale, and Los Angeles when conducting an engineering and traffic survey of the public streets within the boundaries of the Rancho Master Plan Area, the Horse Overlay Zone, and the Sylmar Community Plan Area and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area, respectively, to each consider equestrian safety, in addition to the specified factors set forth.

This bill would make legislative findings and declarations as to the necessity of a special statute for the Cities of Burbank, Glendale, and Los Angeles.

Existing law generally sets forth prima facie speed limits, unless changed or otherwise authorized by law. Existing law permits local authorities to set prima facie speed limits on the basis of an engineering and traffic survey, as defined, if the different speed limit is necessary to facilitate the orderly movement of traffic and is reasonable and safe. Existing law authorizes the City of Norco and the common interest development of Orange Park Acres, when conducting an engineering and traffic survey, to consider equestrian safety, in addition to the specified factors set forth.

This bill would authorize the City of Burbank and the City of Glendale, Cities of Burbank, Glendale, and Los Angeles when conducting an engineering and traffic survey of the public streets within the boundaries of the Rancho Master Plan Area and Area, the Horse Overlay Zone, and the Sylmar Community Plan Area and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area, respectively, to each consider equestrian safety, in addition to the specified factors set forth.

This bill would make legislative findings and declarations as to the necessity of a special statute for the City of Burbank. Cities of Burbank, Glendale, and Los Angeles.

Existing law generally sets forth prima facie speed limits, unless changed or otherwise authorized by law. Existing law permits local authorities to set prima facie speed limits on the basis of an engineering and traffic survey, as defined, if the different speed limit is necessary to facilitate the orderly movement of traffic and is reasonable and safe. Existing law authorizes the City of Norco and the common interest development of Orange Park Acres, when conducting an engineering and traffic survey, to consider equestrian safety, in addition to the specified factors set forth.

This bill would authorize the City of Burbank and the City of Glendale, when conducting an engineering and traffic survey of the public streets within the boundaries of the Rancho Master Plan area in their respective city, Area and the Horse Overlay Zone, respectively, to each consider equestrian safety, in addition to the specified factors set forth.

This bill would make legislative findings and declarations as to the necessity of a special statute for the City of Burbank.

Existing law generally sets forth prima facie speed limits, unless changed or otherwise authorized by law. Existing law permits local authorities to set prima facie speed limits on the basis of an engineering and traffic survey, as defined, if the different speed limit is necessary to facilitate the orderly movement of traffic and is reasonable and safe. Existing law authorizes the City of Norco and the common interest development of Orange Park Acres, when conducting an engineering and traffic survey, to consider equestrian safety, in addition to the specified factors set forth.

This bill would authorize the City of Burbank, Burbank and the City of Glendale, when conducting an engineering and traffic survey of the public streets within the boundaries of the Rancho Master Plan area in the their respective city, to each consider equestrian safety, in addition to the specified factors set forth.

This bill would make legislative findings and declarations as to the necessity of a special statute for the City of Burbank.

Existing law generally sets forth prima facie speed limits, unless changed or otherwise authorized by law. Existing law permits local authorities to set prima facie speed limits on the basis of an engineering and traffic survey, as defined, if the different speed limit is necessary to facilitate the orderly movement of traffic and is reasonable and safe. Existing law authorizes the City of Norco and the common interest development of Orange Park Acres, when conducting an engineering and traffic survey, to consider equestrian safety, in addition to the specified factors set forth.

This bill would authorize the City of Burbank, when conducting an engineering and traffic survey of the public streets within the boundaries of the Rancho Master Plan area in the city, to consider equestrian safety, in addition to the specified factors set forth.

This bill would make legislative findings and declarations as to the necessity of a special statute for the City of Burbank.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 2955

Author:(Friedman)

As Amended Ver:August 8, 2018

Majority vote

Original Committee Reference: TRANS.

SUMMARY: Authorizes the cities of Burbank and Glendale to consider equestrian safety when conducting traffic surveys and setting speed limits in the boundaries of the Rancho Master Plan area in Burbank and the Horse Overlay Zone in Glendale.

The Senate amendments

1. Authorize the City of Los Angeles to consider equestrian safety when conducting an engineering and traffic surveys and setting speed limits within the boundaries of the Sylmar Community Plan Area and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area of the city of Los Angeles.
2. Add a co-author.

EXISTING LAW:

1. Permits local authorities to conducting an engineering and traffic survey, as specified.
2. Permits local authorities in the County of Orange, when conducting an engineer and traffic survey of the public streets within the boundaries of the common interest development known as Orange Park Acres, to consider equestrian safety.
3. Permits local authorities in the City of Norco, when conducting an engineer and traffic survey, to consider equestrian safety.

FISCAL EFFECT: None. This bill is keyed non-fiscal by the Legislative Counsel.

COMMENTS: Setting Speed Limits: Existing law requires Caltrans, after consultation with local agencies and public hearings, to adopt rules and regulations that prescribe uniform standards and specifications for traffic control devices, including the posting of speed limits. Caltrans adopts these rules as the California Manual on Uniform Traffic Control Devices (MUTCD), which, among other things, prescribes the process for setting speed limits in this state.

In California and elsewhere, speed limits are generally set in accordance with engineering and traffic surveys, which measure prevailing vehicular speeds and establish the limit at or near the 85th percentile (i.e., the speed that 15% of motorists exceed). California uses the 85th percentile to set speed limits except in cases where the limit is set in state law, such as the 25 mile per hour (mph) limit in residence districts and school zones, or where an engineering and traffic survey shows that other safety-related factors suggest that a lower speed limit is warranted. These safety-related factors, as prescribed by law, include accident data; highway, traffic, and roadway conditions not readily apparent to the driver; residential density; and pedestrian and bicyclist safety.

Speed limits are allowed to deviate from the 85th percentile in a couple of ways. First, if 85th percentile is not in an increment of 5 mph, MUTCD requires the speed limit to be rounded to the nearest five mph limit. So if the 85th percentile is 32 mph, the speed limit can be rounded down to 30 mph. If the 85th percentile is 34 mph, it must be rounded up to 35 mph. In the first example, traffic surveyors are allowed to reduce the speed limit from 30 mph to 25 mph based on accident records, pedestrian and bicycle safety, and the density of the area. In the second example, traffic surveyors would be allowed to round down to 30 mph, but are prohibited from lowering the speed limit any further.

Existing law allows traffic surveyors to also take into account equestrian safety in the City of Norco and within the Orange Park Acres development in Orange County.

Rancho Master Plan: This bill extends to the cities of Burbank and Glendale the ability to have their traffic surveyor's also consider equestrian safety when setting speed limits in the area of the Rancho Master Plan. The Rancho Master plan is an area located in the southeast corner of Burbank. Special land use policies were adopted in 1993 to protect the unique equestrian nature of the Rancho area. The area is 10,966 acres, more than half of which is residential, commercial and industrial. While the Master Plan was never adopted, the area is still referred to as the Rancho Master Plan by the city. This bill will allow equestrian safety be considered in that area as described in the City of Burbank's General Plan adopted on February 19, 2013.

Horse Overlay Zone: Directly adjacent to the Rancho Master Plan area of Burbank is the Riverside Rancho neighborhood in Glendale. This neighborhood shares similar characteristics to the Rancho Master Plan and Glendale has zoned the area to allow for homeowners to keep horses. This bill will allow traffic surveyors to consider equestrian safety within the boundaries of the Horse Overlay Zone, as defined in the Glendale Municipal Code, Chapter 30.21.

Los Angeles: The Sylmar Community Plan Area and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area in the City of Los Angeles are semi-rural, suburban communities in the foothills of the San Gabriel Mountains

Committee Comments: While the Rancho area of Burbank and the Rancho Riverside neighborhood of Glendale are unique in their preservation of equestrian areas in an otherwise highly urban neighborhood, it is unclear as to what effect this bill would have on speed limits. The current speed limits appear to have no effect on equestrian safety, as no evidence has been provided that there has been any accidents involving horses in Burbank, and only one accident involving a horse has occurred in the City of Glendale in the last decade.

Analysis Prepared by: David Sforza / TRANS. / (916) 319-2093 FN: 0003890

 THIRD READING  

Bill No: AB 2955

Author: , et al.

: 8/8/18

Vote:

SENATE TRANS. & HOUSING COMMITTEE: 12-0, 6/12/18

AYES: Beall, Cannella, Allen, Dodd, Gaines, Galgiani, McGuire, Roth, Skinner, Vidak, Wieckowski, Wiener

NO VOTE RECORDED: Morrell

ASSEMBLY FLOOR: 74-0, 5/21/18 - See last page for vote

SUBJECT: Traffic: Cities of Burbank, Glendale, and Los Angeles

SOURCE: Author

DIGEST:

This bill authorizes the City of Burbank within the boundaries of the Rancho Master Plan Area, the City of Glendale within the Horse Overlay Zone, and the City of Los Angeles within the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Areas, to additionally consider equestrian safety when conducting traffic surveys and setting speed limits.

Senate Floor Amendments of 8/8/18 add a coauthor to the bill.

ANALYSIS:

Existing law:

1. Requires the California Department of Transportation (Caltrans), after consultation with local agencies and public hearings, to adopt rules and regulations prescribing uniform standards and specifications for all official traffic control devices, including, but not limited to, stop signs, yield right-of-way signs, speed restriction signs, railroad warning approach signs, street name signs, lines and markings on the roadway, and stock crossing signs.
2. Requires the basis of an engineering and traffic survey to set and change certain speed limits, as specified.
3. Requires an engineering and traffic survey to include, among other requirements deemed necessary by Caltrans, consideration of all of the following:
   1. Prevailing speeds as determined by traffic engineering measurements.
   2. Accident records.
   3. Highway, traffic, and roadside conditions not readily apparent to the driver.
4. Permits local authorities to additionally consider residential density, under specified conditions, and pedestrian and bicycle safety.
5. Permits local authorities in the County of Orange, when conducting an engineering and traffic survey of the public streets within the boundaries of the common interest development known as Orange Park Acres, to additionally consider equestrian safety.
6. Permits local authorities in the City of Norco, when conducting an engineering and traffic survey, to additionally consider equestrian safety.

This bill authorizes local authorities in the City of Burbank within the boundaries of the Rancho Master Plan Area, the City of Glendale within the Horse Overlay Zone, and the City of Los Angeles within the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Areas, to additionally consider equestrian safety when conducting an engineering and traffic survey.

Background

In California and elsewhere, speed limits are generally set in accordance with engineering and traffic surveys, which measure the speed of free-flowing traffic and establish the limit at the 85th percentile (i.e., the speed that 15% of motorists exceed) rounded to the nearest 5 mile per hour (mph) increment. California uses the 85th percentile to set speed limits except in cases where the limit is set in state law, such as the 25 mph limit in residence districts and school zones, or where other factors suggest a change to the speed limit is warranted. These factors, as prescribed by law, include accident data, highway, traffic, and roadway conditions not readily apparent to the driver, residential density, and pedestrian and bicyclist safety. These factors can only reduce or increase the speed limit by 5 mph. The Legislature has also authorized the City of Norco and Orange Park Acres to additionally consider equestrian safety as one of these factors.

Comments

1. Purpose. According to the author, equestrian safety is a priority of the historic neighborhoods designated by the Rancho Master Plan Area between Burbank and Glendale, the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Area in the City of Los Angeles. These adjacent communities have maintained their western heritage since early in the 20th century, and have experienced increased traffic.  This has caused safety concerns for pedestrians and equestrian users within and adjacent to these communities. This bill allows these specific communities within Glendale, Burbank, and Los Angeles to set speed limits that consider equestrian safety.
2. Summary of affected areas. Sylmar Community Plan Area^[1] and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area^[2] in the City of Los Angeles are semi-rural, suburban communities in the foothills of the San Gabriel Mountains. The Rancho Master Plan Area in the City of Burbank and the Horse Overlay Zone of Glendale are in urban neighborhoods, but have preserved equestrian areas and an extensive network of equestrian trails. Many residents in these communities ride their horses on public streets in order to access equestrian trails and areas. This bill allows these communities to additionally consider equestrian safety when doing their engineering and traffic surveys.
3. Rules of the road for horseback riders. In general, horseback riders or horse drawn vehicles on public roads are subject to the rules of the road, such as obeying speed limits and traffic signals. Existing law requires motorists to drive with caution when approaching any horses on the road in order to not frighten them and to insure the safety of the riders. Local and state authorities are also allowed to designate equestrian crossings, with specified signs, in order to provide safe right-of-way.
4. Impact of the bill. It is unclear as to what effect this bill would have on existing speed limits. Local authorities already have the statutory authority to identify and consider the presence of an equestrian community, under “factors not readily apparent to the driver”, in their engineering and traffic surveys. Also, the existing speed limits in the specified communities in this bill appear to have no negative impact on equestrian safety, since there have not been any reports of traffic accidents involving horses in the specified areas.
5. End around to lower speed limits. The opposition to this bill is concerned that this bill may allow local authorities to circumvent current procedure and set speed limits lower than what is reasonable. The problem with setting a speed limit much lower than the 85th percentile speed is that it creates speed violators out of the majority of ‘reasonable’ drivers, potentially increasing ticketing and police contact with the motoring public. However, it is unclear whether this provision has been used to significantly decrease speed limits in the City of Norco and Orange Park Acres, where this authorization has already been given.

Related/Prior Legislation

AB 1669 (Wagner, Chapter 282, Statutes of 2014) authorized Orange County, within the common-interest development of Orange Park Acres, to also consider equestrian safety when conducting an engineering and traffic survey.

AB 2402 (Pacheco, Chapter 186, Statutes of 2002) authorized the City of Norco to also consider equestrian safety when conducting an engineering and traffic survey.

FISCAL EFFECT: Appropriation: Fiscal Com.: Local:

SUPPORT: (Verified 8/9/18)

City of Burbank

City of Glendale

OPPOSITION: (Verified 8/9/18)

Safer Streets LA

Western States Trucking Association

ARGUMENTS IN SUPPORT: The City of Burbank writes that “residents frequently travel through the community by horse, often traversing the same roads as vehicles. This bill will allow the City of Burbank and Glendale, when setting speed limits on the public streets within the common-interest boundaries of Rancho Master Plan, to use equestrian safety as a safety-related factor.”

ARGUMENTS IN OPPOSITION: Safer Streets LA writes that this bill “is another unnecessary step in the weakening of our speed trap protections. This legislation would make roads less safe, would be unfair to the motoring public, and would make the jobs of law enforcement officers more difficult.”

ASSEMBLY FLOOR: 74-0, 5/21/18

AYES: Acosta, Aguiar-Curry, Travis Allen, Arambula, Baker, Berman, Bigelow, Bloom, Bonta, Brough, Burke, Caballero, Calderon, Carrillo, Cervantes, Chau, Chávez, Chen, Chiu, Choi, Chu, Cooley, Cooper, Cunningham, Dahle, Daly, Flora, Fong, Frazier, Friedman, Gallagher, Gipson, Gloria, Gonzalez Fletcher, Grayson, Harper, Holden, Irwin, Jones-Sawyer, Kalra, Kamlager-Dove, Kiley, Lackey, Levine, Limón, Low, Maienschein, Mathis, Mayes, McCarty, Medina, Melendez, Mullin, Muratsuchi, Nazarian, Obernolte, O'Donnell, Patterson, Quirk, Quirk-Silva, Reyes, Rodriguez, Rubio, Salas, Santiago, Steinorth, Mark Stone, Thurmond, Ting, Voepel, Waldron, Weber, Wood, Rendon

NO VOTE RECORDED: Eggman, Cristina Garcia, Eduardo Garcia, Gray

Prepared by:

8/10/18 11:20:11

**** END ****

1. https://planning.lacity.org/cpu/Sylmar/Draft/Draft_CommunityPlan.pdf ↑

2. https://planning.lacity.org/complan/pdf/sldcptxt.pdf ↑

 THIRD READING  

Bill No: AB 2955

Author:

:

Vote:

SENATE TRANS. & HOUSING COMMITTEE: 12-0, 6/12/18

AYES: Beall, Cannella, Allen, Dodd, Gaines, Galgiani, McGuire, Roth, Skinner, Vidak, Wieckowski, Wiener

NO VOTE RECORDED: Morrell

ASSEMBLY FLOOR: 74-0, 5/21/18 - See last page for vote

SUBJECT:

SOURCE: Author

DIGEST:

This bill authorizes the City of Burbank within the boundaries of the Rancho Master Plan Area, the City of Glendale within the Horse Overlay Zone, and the City of Los Angeles within the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Areas, to additionally consider equestrian safety when conducting traffic surveys and setting speed limits.

ANALYSIS:

Existing law:

1. Requires the California Department of Transportation (Caltrans), after consultation with local agencies and public hearings, to adopt rules and regulations prescribing uniform standards and specifications for all official traffic control devices, including, but not limited to, stop signs, yield right-of-way signs, speed restriction signs, railroad warning approach signs, street name signs, lines and markings on the roadway, and stock crossing signs.
2. Requires the basis of an engineering and traffic survey to set and change certain speed limits, as specified.
3. Requires an engineering and traffic survey to include, among other requirements deemed necessary by Caltrans, consideration of all of the following:
   1. Prevailing speeds as determined by traffic engineering measurements.
   2. Accident records.
   3. Highway, traffic, and roadside conditions not readily apparent to the driver.
4. Permits local authorities to additionally consider residential density, under specified conditions, and pedestrian and bicycle safety.
5. Permits local authorities in the County of Orange, when conducting an engineering and traffic survey of the public streets within the boundaries of the common interest development known as Orange Park Acres, to additionally consider equestrian safety.
6. Permits local authorities in the City of Norco, when conducting an engineering and traffic survey, to additionally consider equestrian safety.

This bill authorizes local authorities in the City of Burbank within the boundaries of the Rancho Master Plan Area, the City of Glendale within the Horse Overlay Zone, and the City of Los Angeles within the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Areas, to additionally consider equestrian safety when conducting an engineering and traffic survey.

Background

In California and elsewhere, speed limits are generally set in accordance with engineering and traffic surveys, which measure the speed of free-flowing traffic and establish the limit at the 85th percentile (i.e., the speed that 15% of motorists exceed) rounded to the nearest 5 mph increment. California uses the 85th percentile to set speed limits except in cases where the limit is set in state law, such as the 25 mile per hour (mph) limit in residence districts and school zones, or where other factors suggest a change to the speed limit is warranted. These factors, as prescribed by law, include accident data, highway, traffic, and roadway conditions not readily apparent to the driver, residential density, and pedestrian and bicyclist safety. These factors can only reduce or increase the speed limit by 5 mph. The Legislature has also authorized the City of Norco and Orange Park Acres to additionally consider equestrian safety as one of these factors.

Comments

1. Purpose. According to the author, equestrian safety is a priority of the historic neighborhoods designated by the Rancho Master Plan Area between Burbank and Glendale, the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Area in the City of Los Angeles. These adjacent communities have maintained their western heritage since early in the 20th century, and have experienced increased traffic.  This has caused safety concerns for pedestrians and equestrian users within and adjacent to these communities. This bill allows these specific communities within Glendale, Burbank, and Los Angeles to set speed limits that consider equestrian safety.
2. Summary of affected areas. Sylmar Community Plan Area^[1] and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area^[2] in the City of Los Angeles are semi-rural, suburban communities in the foothills of the San Gabriel Mountains. The Rancho Master Plan Area in the City of Burbank and the Horse Overlay Zone of Glendale are in urban neighborhoods, but have preserved equestrian areas and an extensive network of equestrian trails. Many residents in these communities ride their horses on public streets in order to access equestrian trails and areas. This bill allows these communities to additionally consider equestrian safety when doing their engineering and traffic surveys.
3. Rules of the road for horseback riders. In general, horseback riders or horse drawn vehicles on public roads are subject to the rules of the road, such as obeying speed limits and traffic signals. Existing law requires motorists to drive with caution when approaching any horses on the road in order to not frighten them and to insure the safety of the riders. Local and state authorities are also allowed to designate equestrian crossings, with specified signs, in order to provide safe right-of-way.
4. Impact of the bill. It is unclear as to what effect this bill would have on existing speed limits. Local authorities already have the statutory authority to identify and consider the presence of an equestrian community, under “factors not readily apparent to the driver”, in their engineering and traffic surveys. Also, the existing speed limits in the specified communities in this bill appear to have no negative impact on equestrian safety, since there have not been any reports of traffic accidents involving horses in the specified areas.
5. End around to lower speed limits. The opposition to the bill is concerned that this bill may allow local authorities to circumvent current procedure and set speed limits lower than what is reasonable. The problem with setting a speed limit much lower than the 85th percentile speed is that it creates speed violators out of the majority of ‘reasonable’ drivers, potentially increasing ticketing and police contact with the motoring public. However, it is unclear whether this provision has been used to significantly decrease speed limits in the City of Norco and Orange Park Acres, where this authorization has already been given.

Related/Prior Legislation

AB 1669 (Wagner, Chapter 282, Statutes of 2014) authorized Orange County, within the common-interest development of Orange Park Acres, to also consider equestrian safety when conducting an engineering and traffic survey.

AB 2402 (Pacheco, Chapter 186, Statutes of 2002) authorized the City of Norco to also consider equestrian safety when conducting an engineering and traffic survey.

FISCAL EFFECT: Appropriation: Fiscal Com.: Local:

SUPPORT: (Verified 6/13/18)

City of Burbank

City of Glendale

OPPOSITION: (Verified 6/13/18)

Safer Streets LA

Western States Trucking Association

ARGUMENTS IN SUPPORT: The City of Burbank writes that “residents frequently travel through the community by horse, often traversing the same roads as vehicles. This bill will allow the City of Burbank and Glendale, when setting speed limits on the public streets within the common-interest boundaries of Rancho Master Plan, to use equestrian safety as a safety-related factor.”

ARGUMENTS IN OPPOSITION: Safer Streets LA writes that this bill “is another unnecessary step in the weakening of our speed trap protections. This legislation would make roads less safe, would be unfair to the motoring public, and would make the jobs of law enforcement officers more difficult.”

ASSEMBLY FLOOR: 74-0, 5/21/18

AYES: Acosta, Aguiar-Curry, Travis Allen, Arambula, Baker, Berman, Bigelow, Bloom, Bonta, Brough, Burke, Caballero, Calderon, Carrillo, Cervantes, Chau, Chávez, Chen, Chiu, Choi, Chu, Cooley, Cooper, Cunningham, Dahle, Daly, Flora, Fong, Frazier, Friedman, Gallagher, Gipson, Gloria, Gonzalez Fletcher, Grayson, Harper, Holden, Irwin, Jones-Sawyer, Kalra, Kamlager-Dove, Kiley, Lackey, Levine, Limón, Low, Maienschein, Mathis, Mayes, McCarty, Medina, Melendez, Mullin, Muratsuchi, Nazarian, Obernolte, O'Donnell, Patterson, Quirk, Quirk-Silva, Reyes, Rodriguez, Rubio, Salas, Santiago, Steinorth, Mark Stone, Thurmond, Ting, Voepel, Waldron, Weber, Wood, Rendon

NO VOTE RECORDED: Eggman, Cristina Garcia, Eduardo Garcia, Gray

Prepared by:

6/13/18 17:51:25

**** END ****

1. https://planning.lacity.org/cpu/Sylmar/Draft/Draft_CommunityPlan.pdf ↑

2. https://planning.lacity.org/complan/pdf/sldcptxt.pdf ↑

SENATE COMMITTEE ON TRANSPORTATION AND HOUSING

Senator Jim Beall, Chair

2017 - 2018 Regular

Bill No: AB 2955 Hearing Date: 6/12/2018

SUBJECT: Traffic: Cities of Burbank, Glendale, and Los Angeles

DIGEST: This bill would authorize the city of Burbank within the boundaries of the Rancho Master Plan Area, the city of Glendale within the Horse Overlay Zone, and the city of Los Angeles within the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Areas, to additionally consider equestrian safety when conducting traffic surveys and setting speed limits.

ANALYSIS:

Existing law:

1. Requires the California Department of Transportation (Caltrans), after consultation with local agencies and public hearings, to adopt rules and regulations prescribing uniform standards and specifications for all official traffic control devices, including, but not limited to, stop signs, yield right-of-way signs, speed restriction signs, railroad warning approach signs, street name signs, lines and markings on the roadway, and stock crossing signs.
2. Requires the basis of an engineering and traffic survey to set and change certain speed limits, as specified.
3. Requires an engineering and traffic survey to include, among other requirements deemed necessary by Caltrans, consideration of all of the following:
4. Prevailing speeds as determined by traffic engineering measurements.
5. Accident records.
6. Highway, traffic, and roadside conditions not readily apparent to the driver.
7. Permits local authorities to additionally consider residential density, under specified conditions, and pedestrian and bicycle safety.
8. Permits local authorities in the County of Orange, when conducting an engineering and traffic survey of the public streets within the boundaries of the common interest development known as Orange Park Acres, to additionally consider equestrian safety.
9. Permits local authorities in the City of Norco, when conducting an engineering and traffic survey, to additionally consider equestrian safety.

This bill permits local authorities in the city of Burbank within the boundaries of the Rancho Master Plan Area, the city of Glendale within the Horse Overlay Zone, and the city of Los Angeles within the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Areas, when conducting an engineering and traffic survey, to additional consider equestrian safety.

COMMENTS

1. Purpose. According to the author, equestrian safety is a priority of the historic neighborhoods designated by the Rancho Master Plan Area between Burbank and Glendale, the Sylmar Community Plan and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Area in the City of Los Angeles. These adjacent communities have maintained their western heritage since early in the 20^th century, and have experienced increased traffic.  This has caused safety concerns for pedestrians and equestrian users within and adjacent to these communities. This bill allows these specific communities within Glendale, Burbank, and Los Angeles to set speed limits that consider equestrian safety.
2. How Speed Limits are Set. In California and elsewhere, speed limits are generally set in accordance with engineering and traffic surveys, which measure the speed of free-flowing traffic and establish the limit at the 85^th percentile (i.e., the speed that 15% of motorists exceed) rounded to the nearest 5 mph increment. California uses the 85^th percentile to set speed limits except in cases where the limit is set in state law, such as the 25 mile per hour (mph) limit in residence districts and school zones, or where other factors suggest a change to the speed limit is warranted. These factors, as prescribed by law, include accident data, highway, traffic, and roadway conditions not readily apparent to the driver, residential density, and pedestrian and bicyclist safety. These factors can only reduce or increase the speed limit by 5 mph. This bill would add equestrian safety as one of these factors, for specified areas in the cities of Burbank, Glendale, and Los Angeles, similar to what has been done in prior legislation for the city of Norco and Orange Park Acres.
3. Summary of Affected Areas. Sylmar Community Plan Area^[1] and the Sunland-Tujunga-Lake View Terrace-Shadow Hills-East La Tuna Canyon Community Plan Area^[2] in the City of Los Angeles are semi-rural, suburban communities in the foothills of the San Gabriel Mountains. The Rancho Master Plan Area in the City of Burbank and the Horse Overlay Zone of Glendale are in urban neighborhoods, but have preserved equestrian areas and an extensive network of equestrian trails. Many residents in these communities ride their horses on public streets in order to access equestrian trails and areas. This bill allows these communities to additionally consider equestrian safety when doing their engineering and traffic surveys.
4. Rules of the Road for Horseback Riders. In general, horseback riders or horse drawn vehicles on public roads are subject to the rules of the road, such as obeying speed limits and traffic signals. Existing law requires motorists to drive with caution when approaching any horses on the road in order to not frighten them and to insure the safety of the riders. Local and state authorities are also allowed to designate equestrian crossings, with specified signs, in order to provide safe right-of-way.
5. Impact of the Bill. It is unclear as to what effect this bill would have on existing speed limits. Local authorities also already have the statutory authority to identify and consider the presence of an equestrian community, under “factors not readily apparent to the driver”, in their engineering and traffic surveys. Also, the current speed limits in the specified communities in this bill appear to have no negative impact on equestrian safety, since there have not been any reports of traffic accidents involving horses in the specified areas.
6. End Around to Lower Speed Limits. The opposition to the bill is concerned that this bill may allow local authorities to circumvent current procedure and set speed limits lower than what is reasonable. The problem with setting speed limits much lower than the 85^th percentile is that it creates speed violators out of the majority of ‘reasonable’ drivers, potentially increasing ticketing and police contact with the motoring public. However, there are no reports that similar provisions given to the city of Norco or Orange Park Acres have significantly lowered the speed limits in those areas.

Related Legislation:

AB 2402 (Pacheco, Chapter 186, Statutes of 2002) — allowed the City of Norco to also consider equestrian safety when conducting an engineering and traffic survey.

AB 1669 (Wagner, Chapter 282, Statutes of 2014) — allowed Orange County, within the common-interest development of Orange Park Acres, to also consider equestrian safety when conducting an engineering and traffic survey.

Assembly Votes:

Floor: 74-0

Trans: 14-0

FISCAL EFFECT: Appropriation: Fiscal Com.: Local:

POSITIONS: (Communicated to the committee before noon on Wednesday,

June 6, 2018.)

SUPPORT:

City of Burbank

City of Glendale

OPPOSITION:

Western States Trucking Association

-- END --

1. https://planning.lacity.org/cpu/Sylmar/Draft/Draft_CommunityPlan.pdf ↑

2. https://planning.lacity.org/complan/pdf/sldcptxt.pdf ↑

ASSEMBLY THIRD READING

ATR Bill Id:AB 2955

Author:(Friedman)

As Amended Ver:May 17, 2018

Majority vote

SUMMARY: Authorizes the cities of Burbank and Glendale to consider equestrian safety when conducting traffic surveys and setting speed limits in the boundaries of the Rancho Master Plan area in Burbank and the Horse Overlay Zone in Glendale.

EXISTING LAW:

1. Permits local authorities to conducting an engineering and traffic survey, as specified.
2. Permits local authorities in the County of Orange, when conducting an engineer and traffic survey of the public streets within the boundaries of the common interest development known as Orange Park Acres, to consider equestrian safety.
3. Permits local authorities in the City of Norco, when conducting an engineer and traffic survey, to consider equestrian safety.

COMMENTS:

Setting Speed Limits: Existing law requires Caltrans, after consultation with local agencies and public hearings, to adopt rules and regulations that prescribe uniform standards and specifications for traffic control devices, including the posting of speed limits. Caltrans adopts these rules as the California Manual on Uniform Traffic Control Devices (MUTCD), which, among other things, prescribes the process for setting speed limits in this state.

In California and elsewhere, speed limits are generally set in accordance with engineering and traffic surveys, which measure prevailing vehicular speeds and establish the limit at or near the 85th percentile (i.e., the speed that 15% of motorists exceed). California uses the 85th percentile to set speed limits except in cases where the limit is set in state law, such as the 25 mile per hour (mph) limit in residence districts and school zones, or where an engineering and traffic survey shows that other safety-related factors suggest that a lower speed limit is warranted. These safety-related factors, as prescribed by law, include accident data; highway, traffic, and roadway conditions not readily apparent to the driver; residential density; and pedestrian and bicyclist safety.

Speed limits are allowed to deviate from the 85th percentile in a couple of ways. First, if 85th percentile is not in an increment of 5 mph, MUTCD requires the speed limit to be rounded to the nearest 5 mph limit. So if the 85th percentile is 32 mph, the speed limit can be rounded down to 30 mph. If the 85th percentile is 34 mph, it must be rounded up to 35 mph. In the first example, traffic surveyors are allowed to reduce the speed limit from 30 mph to 25 mph based on accident records, pedestrian and bicycle safety, and the density of the area. In the second example, traffic surveyors would be allowed to round down to 30 mph, but are prohibited from lowering the speed limit any further.

Existing law allows traffic surveyors to also take into account equestrian safety in the City of Norco and within the Orange Park Acres development in Orange County.

Rancho Master Plan: This bill extends to the cities of Burbank and Glendale the ability to have their traffic surveyor's also consider equestrian safety when setting speed limits in the area of the Rancho Master Plan. The Rancho Master plan is an area located in the southeast corner of Burbank. Special land use policies were adopted in 1993 to protect the unique equestrian nature of the Rancho area. The area is 10,966 acres, more than half of which is residential, commercial and industrial. While the Master Plan was never adopted, the area is still referred to as the Rancho Master Plan by the city. This bill will allow equestrian safety be considered in that area as described in the City of Burbank's General Plan adopted on February 19, 2013.

Horse Overlay Zone: Directly adjacent to the Rancho Master Plan area of Burbank is the Riverside Rancho neighborhood in Glendale. This neighborhood shares similar characteristics to the Rancho Master Plan and Glendale has zoned the area to allow for homeowners to keep horses. This bill will allow traffic surveyors to consider equestrian safety within the boundaries of the Horse Overlay Zone, as defined in the Glendale Municipal Code, Chapter 30.21.

Committee comments: While the Rancho area of Burbank and the Rancho Riverside neighborhood of Glendale are unique in their preservation of equestrian areas in an otherwise highly urban neighborhood, it is unclear as to what effect this bill would have on speed limits. The current speed limits appear to have no effect on equestrian safety, as no evidence has been provided that there has been any accidents involving horses in Burbank, and only one accident involving a horse has occurred in the City of Glendale in the last decade.

Please see the policy committee analysis for full discussion of this bill

Analysis Prepared by: David Sforza / TRANS. / (916) 319-2093 FN: 0002934

ASSEMBLY THIRD READING

ATR Bill Id:AB 2955

Author:(Friedman)

As Amended Ver:March 19, 2018

Majority vote

SUMMARY: Authorizes the cities of Burbank and Glendale to consider equestrian safety when conducting traffic surveys and setting speed limits in the boundaries of the Rancho Master Plan area.

EXISTING LAW:

1. Permits local authorities to conducting an engineering and traffic survey, as specified.
2. Permits local authorities in the County of Orange, when conducting an engineer and traffic survey of the public streets within the boundaries of the common interest development known as Orange Park Acres, to consider equestrian safety.
3. Permits local authorities in the City of Norco, when conducting an engineer and traffic survey, to consider equestrian safety.

COMMENTS:

Setting Speed Limits: Existing law requires Caltrans, after consultation with local agencies and public hearings, to adopt rules and regulations that prescribe uniform standards and specifications for traffic control devices, including the posting of speed limits. Caltrans adopts these rules as the California Manual on Uniform Traffic Control Devices (MUTCD), which, among other things, prescribes the process for setting speed limits in this state.

In California and elsewhere, speed limits are generally set in accordance with engineering and traffic surveys, which measure prevailing vehicular speeds and establish the limit at or near the 85th percentile (i.e., the speed that 15% of motorists exceed). California uses the 85th percentile to set speed limits except in cases where the limit is set in state law, such as the 25 mile per hour (mph) limit in residence districts and school zones, or where an engineering and traffic survey shows that other safety-related factors suggest that a lower speed limit is warranted. These safety-related factors, as prescribed by law, include accident data; highway, traffic, and roadway conditions not readily apparent to the driver; residential density; and pedestrian and bicyclist safety.

Speed limits are allowed to deviate from the 85th percentile in a couple of ways. First, if 85th percentile is not in an increment of five mph, MUTCD requires the speed limit to be rounded to the nearest five mph limit. So if the 85th percentile is 32 mph, the speed limit can be rounded down to 30 mph. If the 85th percentile is 34 mph, it must be rounded up to 35 mph. In the first example, traffic surveyors are allowed to reduce the speed limit from 30 mph to 25 mph based on accident records, pedestrian and bicycle safety, and the density of the area. In the second example, traffic surveyors would be allowed to round down to 30 mph, but are prohibited from lowering the speed limit any further.

Existing law allows traffic surveyors to also take into account equestrian safety in the City of Norco and within the Orange Park Acres development in Orange County.

Rancho Master Plan: This bill extends to the cities of Burbank and Glendale the ability to have their traffic surveyor's also consider equestrian safety when setting speed limits in the area of the Rancho Master Plan. The Rancho Master plan is an area located in the southeast corner of Burbank. Special land use policies were adopted in 1993 to protect the unique equestrian nature of the Rancho area. The area is 10,966 acres, more than half of which is residential, commercial and industrial. The city of Burbank never adopted the Master Plan, but special land use policies were put into effect to preserve and protect the existing equestrian character of the Rancho area. The Master Plan was intended to have a Neighborhood Protection Plan to deal with traffic impacts and mitigation.

It is unclear at this time what parts of Glendale would be affected by this bill, as the Rancho Master Plan, which was never adopted, is located exclusively in Burbank. Nonetheless, Glendale, writing in support, states that "Having the ability to consider equestrian safety as a safety-related factor in order to decrease posted speed limits in the Rancho area of Glendale will help protect the unique equestrian nature of the area, as many of our residents travel through the neighborhood by horse, often traversing the same roads as vehicles."

Committee comments: While the Rancho area of Burbank and the Rancho Riverside neighborhood of Glendale are unique in their preservation of equestrian areas in an otherwise highly urban neighborhood, it is unclear as to what effect this bill would have on speed limits. The current speed limits appear to have no effect on equestrian safety, as no evidence has been provided that there has been any accidents involving horses in Burbank, and only one accident involving a horse has occurred in the City of Glendale in the last decade.

While the author wishes to extend the provisions of this bill to the parts of Glendale where the accident occurred, the provision limiting this bill's application to the Rancho Master Plan may prevent that from happening. Further, because the Rancho Master Plan was never adopted by Burbank, it is unclear what areas of Burbank would be covered as well. This could lead to a challenge of any speed limit reduced for this reason.

Please see the policy committee analysis for full discussion of this bill.

Analysis Prepared by: David Sforza / TRANS. / (916) 319-2093 FN: 0002730

Date of Hearing: April 23, 2018

ASSEMBLY COMMITTEE ON TRANSPORTATION

Jim Frazier, Chair

ABPCA Bill Id:AB 2955 (

Author:Friedman) – As Amended Ver:March 19, 2018

SUBJECT: Traffic: City of Burbank and City of Glendale

SUMMARY: Authorizes the cities of Burbank and Glendale to consider equestrian safety when conducting traffic surveys and setting speed limits in the boundaries of the Rancho Master Plan area.

EXISTING LAW:

1. Requires the California Department of Transportation (Caltrans), after consultation with local agencies and public hearings, to adopt rules and regulations prescribing uniform standards and specifications for all official traffic control devices, including, but not limited to, stop signs, yield right-of-way signs, speed restriction signs, railroad warning approach signs, street name signs, lines and markings on the roadway, and stock crossing signs.
2. Requires an engineering and traffic survey to include, among other requirements deemed necessary by Caltrans, consideration of all of the following:
   1. Prevailing speeds as determined by traffic engineering measurements;
   2. Accident records; and,
   3. Highway, traffic, and roadside conditions not readily apparent to the driver.
3. Permits local authorities to additionally consider all of the following when conducting an engineering and traffic survey:
   1. Residential density, if any of the following conditions exist on the particular portion of highway and the property contiguous thereto, other than a business district:
      1. Upon one side of the highway, within a distance of a quarter of a mile, the contiguous property fronting thereon is occupied by 13 or more separate dwelling houses or business structures;
      2. Upon both sides of the highway, collectively, within a distance of a quarter of a mile, the contiguous property fronting thereon is occupied by 16 or more separate dwelling houses or business structures; or,
      3. The portion of highway is longer than one-quarter of a mile but has the ratio of separate dwelling houses or business structures to the length of the highway described in either of the above.
   2. Pedestrian and bicyclist safety.
4. Permits local authorities in the County of Orange, when conducting an engineer and traffic survey of the public streets within the boundaries of the common interest development known as Orange Park Acres, to consider equestrian safety.
5. Permits local authorities in the City of Norco, when conducting an engineer and traffic survey, to consider equestrian safety.

FISCAL EFFECT: None, this bill is keyed non-fiscal by the Legislative Counsel.

COMMENTS:

Setting Speed Limits: Existing law requires Caltrans, after consultation with local agencies and public hearings, to adopt rules and regulations that prescribe uniform standards and specifications for traffic control devices, including the posting of speed limits. Caltrans adopts these rules as the California Manual on Uniform Traffic Control Devices (MUTCD), which, among other things, prescribes the process for setting speed limits in this state.

In California and elsewhere, speed limits are generally set in accordance with engineering and traffic surveys, which measure prevailing vehicular speeds and establish the limit at or near the 85th percentile (i.e., the speed that 15% of motorists exceed). California uses the 85th percentile to set speed limits except in cases where the limit is set in state law, such as the 25 mile per hour (mph) limit in residence districts and school zones, or where an engineering and traffic survey shows that other safety-related factors suggest that a lower speed limit is warranted. These safety-related factors, as prescribed by law, include accident data; highway, traffic, and roadway conditions not readily apparent to the driver; residential density; and pedestrian and bicyclist safety.

Speed limits are allowed to deviate from the 85th percentile in a couple of ways. First, if 85th percentile is not in an increment of 5 mph, MUTCD requires the speed limit to be rounded to the nearest 5 mph limit. So if the 85th percentile is 32 mph, the speed limit can be rounded down to 30 mph. If the 85th percentile is 34 mph, it must be rounded up to 35 mph. In the first example, traffic surveyors are allowed to reduce the speed limit from 30 mph to 25 mph based on accident records, pedestrian and bicycle safety, and the density of the area. In the second example, traffic surveyors would be allowed to round down to 30 mph, but are prohibited from lowering the speed limit any further.

Existing law allows traffic surveyors to also take into account equestrian safety in the City of Norco and within the Orange Park Acres development in Orange County.

Rancho Master Plan: This bill extends to the cities of Burbank and Glendale the ability to have their traffic surveyor’s also consider equestrian safety when setting speed limits in the area of the Rancho Master Plan. The Rancho Master plan is an area located in the southeast corner of Burbank. Special land use policies were adopted in 1993 to protect the unique equestrian nature of the Rancho area. The area is 10,966 acres, more than half of which is residential, commercial and industrial. The city of Burbank never adopted the Master Plan, but special land use policies were put into effect to preserve and protect the existing equestrian character of the Rancho area. The Master Plan was intended to have a Neighborhood Protection Plan to deal with traffic impacts and mitigation.

It is unclear at this time what parts of Glendale would be affected by this bill, as the Rancho Master Plan, which was never adopted, is located exclusively in Burbank. Nonetheless, Glendale, writing in support, states that “Having the ability to consider equestrian safety as a safety-related factor in order to decrease posted speed limits in the Rancho area of Glendale will help protect the unique equestrian nature of the area, as many of our residents travel through the neighborhood by horse, often traversing the same roads as vehicles.”

Committee comments: While the Rancho area of Burbank and the Rancho Riverside neighborhood of Glendale are unique in their preservation of equestrian areas in an otherwise highly urban neighborhood, it is unclear as to what effect this bill would have on speed limits. The current speed limits appear to have no effect on equestrian safety, as no evidence has been provided that there has been any accidents involving horses in Burbank, and only one accident involving a horse has occurred in the City of Glendale in the last decade.

While the author wishes to extend the provisions of this bill to the parts of Glendale where the accident occurred, the provision limiting this bill’s application to the Rancho Master Plan may prevent that from happening. Further, because the Rancho Master Plan was never adopted by Burbank, it is unclear what areas of Burbank would be covered as well. This could lead to a challenge of any speed limit reduced for this reason. The author may wish to better clarify what portions of Burbank and Glendale should be covered by this proposal.

REGISTERED SUPPORT / OPPOSITION:

Support

City of Burbank

City of Glendale

Opposition

Safer Streets L.A.

Western States Trucking Association

Analysis Prepared by: David Sforza / TRANS. / (916) 319-2093