Consistent Speed Limits for Vulnerable Road Users

Examples from Various Agencies

ISSUE STRATEGIES TAKEAWAYS

➤ Ped/bike crashes are a particular

safety issue for many cities

➤ Inconsistent speed limits violate

driver expectancy

➤ Data-driven approach which made

a case for how lower speed limits

would impact vulnerable road users

➤ Advocacy played a key role

➤ Most agencies also addressed

speed limits as part of a

comprehensive plan that included

other speed management solutions

➤ Comprehensive approach

demonstrated reductions were part

of larger strategy

➤ Consistent speeds address driver

expectancy

➤ Outreach activities were also used

Background

Speed limits are sometimes inconsistent within a jurisdiction for 

similar roadways. In some cases, this is because speed limits are 

applied to roadway sections based on characteristics which may 

not be obvious to the driver. For instance, speed limits on one 

roadway classified as a collector are set at 35 mph while another 

collector with similar characteristics is set at 30 mph due to a higher 

crash history. Since both appear similar to drivers, they are likely to 

apply the speed they believe is the most suitable to both roadways.

In other cases, as noted by “Methods and Practices for 

Setting Speed Limits: An Informational Report,” varying 

levels of experience, use of different procedures, as well as 

subjective procedures for determining speed limits can lead 

to inconsistencies in setting speed limits within or between 

jurisdictions1. In either case, inconsistency violates driver 

expectancy and can lead to drivers disregarding speed limits.

Setting Consistent Speed Limits

Consistent speed limits on roadways with similar functions and 

characteristics assist drivers in developing good driving habits. 

As a result, drivers understand what is expected when they 

enter a particular area2. Additionally, consistent and credible 

speed limits can be more easily enforced.

Several agencies have instituted consistent speed limits across 

a particular type of roadway as described in the following 

examples. The idea is to provide drivers with a consistent 

message. In most of the cases highlighted, speed limits were 

used to address vulnerable road users due to high pedestrian 

and bicyclist fatalities. As a result, the use of consistent speed 

limits across a jurisdiction usually resulted in lower speed 

limits. Although not highlighted in these noteworthy practices, 

the use of consistent speed limits can include redefining 

speed limit zone lengths and increasing speed limits along 

sections where a lower speed was not warranted.

Examples of Successful Applications

The following summarizes examples of agencies that 

successfully set consistent speed limits. In most cases, changes 

were made to address pedestrian and bicyclist safety. 

Charlotte, North Carolina

Between 2013 and 2017, while pedestrian and bicycling 

crashes accounted for less than 3 percent of crashes they 

made up 44 percent of fatalities3 in Charlotte. In response to 

concerns about traffic speed and pedestrian safety, the City 

of Charlotte developed a neighborhood traffic management 

program which is a joint program between the city and 

residents4 as well as adopted the city’s Vision Zero plan. 

Speed Limit Sign Source: Getty Images

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Consistent Speed Limits for Vulnerable Road Users

As part of those action plans, the city changed the speed 

limits on streets classified as “local” from 35 mph to 25 mph in 

November of 20185. The city also adopted other pedestriancentric measures such as additional sidewalk construction, 

sidewalk improvements, and upgrades to pedestrian 

crossings. The Vision Zero action items were a result of a datadriven approach that included engaging with the community, 

enforcement, and education.

Portland, Oregon

Almost half (47 percent) of fatal crashes in Portland are the result 

of speeding. Pedestrians account for 31 percent and bicyclists 

account for 6 percent of motor vehicle fatalities. Further, 57 

percent of deadly crashes occur on 8 percent of Portland Streets6. 

Portland adopted a Vision Zero Action Plan in 2015 to reduce 

fatal and serious injuries. The plan developed a High Crash 

Network which identified high crash locations for people 

walking, biking, and driving. The plan also reviewed how 

speed limits were set including use of the 85th percentile 

speed. Their approach shifted away from setting speed 

limits solely based on drivers to a balanced approach that 

incorporates all road users. Part of this plan was to achieve 

speed consistency on local residential streets7. State law 

was successfully amended in 2017 to allow speed limits to 

be reduced from 25 to 20 mph on all of 3,000 miles of local 

residential streets. The bill that passed in 2017 was specifically 

for Portland. More recent legislation may allow the law to 

expand this option to cities across Oregon8. Portland used the 

marketing theme “20 is plenty” and conducted activities such 

a distributing yard signs to remind residents7. The Vision Zero 

Action Plan incorporated a range of other activities9,

10.

Seattle, Washington

The City of Seattle, Washington experienced around 20 

fatalities and 150 serious injury crashes annually. Pedestrian 

and bicyclist crashes made up 5 percent of all crashes but 

almost 50 percent of fatalities. Additionally, 9 out of 10 

bicycle/pedestrian crashes resulted in injury. Speeding 

contributed to 25 percent of fatalities citywide and 42 percent 

of downtown traffic fatalities. 

In order to address these and other traffic safety issues, Seattle 

funded Vision Zero through a 9- year transportation levy. As 

part of this initiative, Washington State passed legislation in 

2013 allowing localities to lower speed limits to 20 mph. As a 

result, Seattle set consistent speed limits on non-arterials at 20 

mph. Additionally, 200 miles of arterial streets were re-signed 

from 30 mph to 25 mph in 201611. 

Seattle also utilized additional speed management strategies 

such as lane narrowing, speed cushions, and removing the 

center line. The process also included focusing on safety 

corridors with six completed and seven scheduled for 2019. 

Other safety corridor improvements include use of Leading 

Pedestrian Intervals (LPI), addition of protected bike lanes, 

use of more durable and visible pavement markings, lane 

narrowing, and speed cushions12. An LPI starts the pedestrian 

“walk” signal several seconds before the vehicle green phase 

changes so pedestrians are more visible to drivers making 

conflicting movements.

Although not solely attributed to changes in the speed limit, 

fatalities decreased by 26 percent between 2017 and 201813.

Biker along busy roadway. Source: Getty Images

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Case Study 7: Noteworthy Speed Management Practices
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New York City, New York

In 2014, pedestrian and bicyclist crashes accounted for 27 

percent of all police reported crashes but made up 62 percent 

of fatalities and 34 percent of injury crashes in New York City 

(NYC). Additionally, unsafe speed was noted as a contributing 

factor in 7 percent of all crashes but accounted for 23 percent 

of fatal crashes14.

The use of consistent city-wide speed limits was one strategy 

that NYC felt would be effective given the high pedestrian and 

bicycle volumes present. However, while State law allowed the 

city to reduce speed limits on a case by case basis, citywide 

speed limits could not be lower than 30 mph15. 

NYC used a data driven and comprehensive approach to 

convince the legislature to pass a measure allowing a default 

25 mph speed limit based on overwhelming evidence about 

pedestrian risk15. In particular, they used evidence to convince 

the legislature that a pedestrian’s risk of dying is twice as high 

when struck at 30 mph as it is for being struck by a vehicle at 

25 mph. According to Repogle15, Deputy Commissioner for 

Policy at the New York City Department of Transportation, they 

also used the argument that lowering New York City’s speed 

limit was the most logical evidence based safety intervention 

they could take to save lives. Similar to their activities for 

safety cameras, the strategy was also part of the NYC Vision 

Zero initiative. The default city-wide speed limit was lowered 

from 30 to 25 MPH in 2014. This included all local streets and 

most arterials, around 90 percent of the streets in New York’s 

five boroughs. The 30 mph speed limit is still allowed on high 

traffic arterials16.

An important part of the process was to ensure the change 

was communicated to the public. Over 4,700 new 25 mph 

speed limit signs were posted. In some cases, the city reevaluated and resigned streets that had speed limits higher 

than 25. Additionally, speed limit maps were created for 

citizens to check speed limits along a particular roadway if 

there were any uncertainties17.

New York City also implemented other speed management 

strategies such as eliminating the number of turning 

movements entering complicated intersections, extending 

medians at intersections, integrating LPI, better lane 

designation, adding pedestrian signals, adding crosswalks or 

pedestrian safety islands, adding speed bumps, addition of 

bike lanes and paths, and increasing street lighting18.

Queens Boulevard, which had a higher than average 

pedestrian fatality rate, had a 3-year period without a single 

pedestrian or bicyclist fatality after the installation of the 25 

mph speed limit and safety cameras15.

Pedestrians in NYC. Source: Getty Images

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Boston, Massachusetts

Pedestrian and bicycle crashes accounted for 71 percent of 

fatal and 30 percent of injury crashes in 2016 in Boston19. 

Efforts to change the default speed limit were also part 

of the city’s Vision Zero program. A State law instituting 

a 25 mph default speed limit was signed in January 2017 

through a combined effort of the Boston City Council, 

Governor, Massachusetts DOT, and the Massachusetts State 

Legislature20. The default speed limit previously was 30 mph. 

In conjunction with the effort, they placed 25 mph signs at 

entrance points and other strategic locations to educate 

drivers about the change.

Overall fatalities in Boston dropped from 21 in 2016 to 10 in 

2018. Pedestrian and bike fatalities decreased from 15 to 7 

over the same time period. Pedestrian injury crashes dropped 

from 893 in 2016 to 680 in 2018, although bicycle crashes 

were reasonably unchanged (422 to 425)19. 

Other Examples

The City of Calgary, Canada has used both playground and 

school zones to protect vulnerable road users. Efforts to 

achieve compliance with speed limits in these areas were 

initially approached using education and enforcement 

followed by traffic control enhancements and speed 

management countermeasures. Prior to 2014, school zones 

and playgrounds in Calgary had different hours and speed 

limits. A commonly noted concern was uncertainty about the 

type of zone a driver was entering along with effective hours. 

Pedestrians in Boston. Source: Getty Images

80% of respondents in the City of 

Calgary survey felt it was easier 

to remember a single speed limit 

and consistent times.

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Case Study 7: Noteworthy Speed Management Practices
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School zone and playground zone speed limits were changed 

by March 2016 to one consistent time (7:30 am to 9:00 pm) 

and speed limit (30 km/h) which is effective year-round,21,

22,23. 

A study by the City of Calgary and the University of Calgary 

collected data from 11 playgrounds and 18 school zones and 

found average speeds decreased from 35.9 to 30.1 km/h. 

Additionally, the study found the collision rate decreased from 

78 percent while injury collisions within playground zones 

decreased by 33 percent21.

Key Takeaways and Lessons Learned

Data-driven approach – All of the agencies highlighted used 

a data-driven approach to set consistent speed limits which 

usually resulted in lower speed limits. Agencies were able to 

demonstrate a significant safety issue for vulnerable road users 

by underscoring the number of fatalities and injuries sustained 

by pedestrians and bicyclists. For instance, NYC used 

evidence about pedestrian risk to convince their legislature to 

make the change. Portland developed a High Crash Network 

and reviewed how speed limits were set. Additionally, most of 

them demonstrated the impact that speed has on the ability 

of vulnerable road users to survive a crash when educating 

decision makers and the public. 

Advocacy – Advocacy efforts are undertaken by concerned 

citizens. Advocacy groups are able to reach out and educate 

their peers to demonstrate the safety issues behind proposed 

changes on a more personal level than agencies may be able 

to achieve. Additionally, many advocacy efforts involved 

groups contacting their legislators which demonstrates 

widespread acknowledgement of the problem. 

Outreach – Most of the agencies spent considerable effort 

in educating the public about the need for changes and 

after consistent speed limits were adopted, they ensured 

the public was aware of the change. This included posting 

a large number of new speed limit signs, developing speed 

limit maps to show where changes had occurred, and using 

marketing campaigns. 

Comprehensive approach – Another strategy for success was 

that in almost all of the cases, agencies also implemented 

other speed management countermeasures rather than just 

relying on changing the speed limit. In most cases, the speed 

limit reduction was part of their Vision Zero plan and was part 

of a multi-pronged approach to the problem. This helps make 

a case to the public that the changes are part of a larger plan 

to address safety.

Playground. Source: Getty Images

Adult and child riding in a bike lane. Source: Getty Images

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1 Forbes, Gerald J., Teresa Gardner, Hugh McGee, and Raghavan Srinivasan. Methods and Practices for Setting Speed Limits: An Informational Report. 

Federal Highway Administration, Office of Safety. FHWA-SA-12-004. April 2012. safety.fhwa.dot.gov/speedmgt/ref_mats/fhwasa12004

2 Speed Management: A Road Safety Manual for Decision-Makers and Practitioners. World Bank, the FIA Foundation and GRSP. February 2008. 

apps.who.int/iris/bitstream/handle/10665/43915/9782940395040_eng.pdf?sequence=1

3 Neighborhood Traffic Management. City of Charlotte, North Carolina. charlottenc.gov/Transportation/Programs/Pages/TrafficCalming.aspx. 

Accessed December 2019.

4 Vision Zero: Safer Streets for Charlotte: 2019 – 2030 Action Plan. City of Charlotte, Department of Transportation. 

charlottenc.gov/VisionZero/Documents/Vision%20Zero%20Action%20Plan.pdf. Accessed December 2019.

5 Speed Limit Lowered to 25 mph on Charlotte Neighborhood Streets.

https://www.wsoctv.com/news/local/city-council-to-vote-on-lowering-speed-limits-in-charlotte-neighborhoods/878588105/ November 27, 2018.

6 Vision Zero Action Plan: Saving Lives with Safe Streets. City of Portland, Oregon. December 2016. 

www.portlandoregon.gov/transportation/71730. Accessed December 2019.

7 Residential Speed Limit Reduction. Portland Department of Transportation. https://www.portlandoregon.gov/transportation/article/669625. Accessed December 2019.

8 Theen, Andrew. “Portland Wraps ‘20 is Plenty’ Effort, Eyes More Speed Limit Reductions.” The Oregonian. April 9, 2019. 

www.oregonlive.com/clackamascounty/2019/04/portland-wraps-20-is-plenty-effort-eyes-more-speed-limit-reductions.html

9 City of Seattle. “Vision Zero: Seattle’s Plan to End Traffic Deaths and Serious Injuries by 2030.” Seattle Department of Transportation. February 2015. 

www.seattle.gov/Documents/Departments/beSuperSafe/VisionZeroPlan.pdf

10 City of Seattle. Vision Zero: Speed Limit Reduction FAQ. City of Seattle, Seattle Department of Transportation. 

www.seattle.gov/Documents/Departments/beSuperSafe/VZ_FAQ_Flyer.pdf. Accessed December 2019.

11 Speed Limits. Seattle Department of Transportation. July 2018. www.seattle.gov/transportation/projects-and-programs/safety-first/vision-zero/speedlimits

12 “An update on Seattle’s ‘Vision Zero’ street safety efforts.” Capitol Hill Seattle Blog. March 8, 2019. 

www.capitolhillseattle.com/2019/03/an-update-on-seattles-vision-zero-street-safety-efforts/

13 Baruchman, Michelle. “Seattle traffic deaths and injuries down slightly last year; most of the fatalities were pedestrians.” The Seattle Times. March 11, 2019. 

www.seattletimes.com/seattle-news/transportation/seattle-traffic-deaths-and-injuries-down-slightly-last-year-most-of-the-fatalities-were-pedestrians/

14 Summary of New York City Motor Vehicle Crashes. New York State Department of Motor Vehicles. dmv.ny.gov/statistic/2014-nyccrashsummary.pdf. 

Accessed December 2019.

15 Repogle, Michael. “How New York City Is Saving Pedestrian Lives Through Lower Speed Limits.” Road and Track. December 27, 2017. 

www.roadandtrack.com/car-culture/a14500765/new-york-city-vision-zero/

16 Bankoff, Caroline. “Things to Know About NYC’s New 25-Miles-Per-Hour Speed Limit.” New York Magazine. November 4, 2014. 

http://nymag.com/intelligencer/2014/11/things-to-know-about-nycs-new-speed-limit.html

17 Meyer, David. "DOT Releases Borough-by-Borough Speed Limit Maps." Streetsblog NYC. April 1, 2016. 

nyc.streetsblog.org/2016/04/01/city-releases-borough-by-borough-speed-limit-maps

18 Street Design and Regulation. New York City Vision Zero. www.nyc.gov/html/visionzero/pages/street-design/street-design.html. Accessed December 2019.

19 Fisher, Jenna. “680 Pedestrians Were Hit By Cars In Boston In 2018: Vision Zero.” Patch, 25 Apr. 25, 2019, 

patch.com/massachusetts/boston/680-pedestrians-were-hit-cars-boston-2018-vision-zero.

20 “Boston's New Default Speed Limit 25 MPH Effective Jan. 9, 2017.” City of Boston. 

www.boston.gov/news/bostons-new-default-speed-limit-25-mph-effective-jan-9-2017

21 Churchill, A.E., Joanna Domarad, Lina Kattan, Suman Mishra, and Greg Iwaskow. Improving safety in school and playground zones through harmonization.

2018 Conference of the Transportation Association of Canada Saskatoon, SK. 

https://www.tac-atc.ca/sites/default/files/conf_papers/churchilla_-_improving_safety.pdf. Accessed December 2019.

22 Calgary. Playground Zones. City of Calgary, Canada. www.calgary.ca/transportation/roads/pages/traffic/traffic-safety-programs/school-zone-safety.aspx. 

Accessed December 2019.

23 Tucker, Erika. “Study on Calgary Playground, School Zone Changes Shows Less Speeding, Collisions after Harmonization.” Global News. September 18, 2017. 

https://globalnews.ca/news/3753764/study-on-calgary-playground-school-zone-changes-shows-less-speeding-collisions-after-harmonization

Addressing driver expectancy – Although most of the 

agencies reduced the speed limit to address safety concerns, 

the use of consistent speed limits also provides drivers with a 

consistent message and expectations. For instance, as noted 

in the Calgary example, instituting the same speed limits and 

effective hours for school zones and playgrounds presented 

drivers with a consistent message. Consistent speed limits 

on roadways with similar functions and characteristics assist 

drivers in developing good driving habits. As a result, drivers 

understand what is expected when they enter a particular area 

(WHO, 2008). Additionally, consistent and credible speed 

limits can be more easily enforced.

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Case Study 7: Noteworthy Speed Management Practices