HomeMy WebLinkAbout102218_cabs01 Department of Public Works
O Commissioners' Briefing Session, 1:30PM
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Jefferson County Board of Commissioners
Agenda Request
To: Board of Commissioners
Philip Morley, County Administrator
From: Monte Reinders, PE, Public Works Director/County Engineer ,..,#,
Agenda Date: October 22, 2018
Subject: Briefing of the Shine Road Speed Limit and Traffic Study,
completed October 2018
Statement of Issue:
The Board of County Commissioners was provided a neighborhood petition requesting
a speed reduction on Shine Road. This road is a rural residential road along the
Squamish Harbor shoreline with connections to SR104. RCW 46.61 .400 establishes the
maximum speed limit on all county roads in Jefferson County at 50 miles per hour,
except as otherwise provided by county resolution/ordinance. Jefferson County
ordinance has listed Shine Road as having a maximum speed limit of 35 MPH.
Analysis / Strategic Goals / Pros Et Cons:
Monte Reinders will present the development and recommendations of the Shine Road
Speed Limit and Traffic Study for discussion purposes. Any changes to maximum
speed limits shall be adopted by resolution after completing an analysis, public notice
and a public hearing.
Fiscal Impact / Cost-Benefit Analysis:
None
Recommendation:
No action required.
Department Contact: Wendy Clark-Getzin, PE, Transportation Planner, 360-385-9162
Reviewed By:
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• -ip Morley su y n-ministra * Date
Shine Road Speed Limit and Traffic Study
October 2018
Jefferson County Public Works
Speed Change Report Shine Road 2018 Page 2
REPORT OF ENGINEERING and TRAFFIC INVESTIGATION and
PROPOSED SPEED LIMIT CHANGE
ROAD NAME and NUMBER: Shine Road, County Road No. 505409
TERMINI: Mile Post (M.P.) 0.00 to M.P. 2.34
EXISTING MAXIMUM SPEED LIMIT: 35 Miles per Hour (MPH)
PROPOSED MAXIMUM SPEED LIMIT: 25 MPH
DATE OF STUDY: October, 2018
This engineering and traffic investigation that considers lowering the speed limit on Shine Road is in
response to numerous requests received from property owners living along this roadway for a lower speed
limit. This culminated in a petition submitted to the Board of County Commissioners on August 6, 2018,
which included signatures from 100 citizens (See Appendix “A”). The petition is also represented in a
map (See Appendix “B”). Several of the citizens submitted letters or emails or made phone calls to
discuss the specific concerns behind the request. Generally, the concerns can be summarized as follows:
• Speed is too fast for the road width which is less than a full two lanes for much of its length
• People speed down the middle of the road
• It is barely wide enough to accommodate two vehicles coming from opposite directions
• Traffic has increased and some drivers use it to get around bridge related backups on SR-104
• The road should be restricted to “local traffic”
• The road has adverse alignment in certain sections and “blind spots”
• There are steep drop-offs to the beach on the south side without much road shoulder because of
erosion
• There is very little road shoulder on the north side where deep drainage ditches are present
• The road is used by residents for walking and there are no shoulders so they cannot get off the
road
• Drivers do not obey the speed limit anyway
• There have been accidents
• A “speed monitor” sign should be installed (digital speed “feedback” sign)
RCW 46.61.400, Basic Rule and Maximum Limits, specifies the maximum speed limit on county roads to
be fifty (50) miles per hour. This is the statutory speed limit for Jefferson County roadways unless
otherwise posted. The basic speed rule also allows for enforcement and citation for driving too fast for
the prevailing conditions, and so the absence of a sign does not necessarily mean one can travel at 50
mph. This section also states that the maximum speed limits set forth in this section may be altered as
authorized in RCW 46.61.405, 46.61.410 and 46.61.415. RCW 46.61.415 covers when local authorities
may alter maximum limits and allows local authorities to increase the limit but to no more than sixty (60)
miles per hour or decrease the speed limit to lower than twenty (20) miles per hour. Local authorities in
their respective jurisdictions shall determine by an engineering and traffic investigation the appropriate
speed for all roadways. Speed limits are contained in Jefferson County code section 10.05.040.
There is a vast amount of engineering literature related to driver behavior and establishing speed limits.
This study primarily relies on information found in:
• The Manual on Uniform Traffic Control Devices (MUTCD) - a federal document adopted by all
50 states
• Methods and Practices for Setting Speed Limits, FHWA-SA-12-004, April 2012
Speed Change Report Shine Road 2018 Page 3
For the purposes of this report, it would not be practical to repeat all of the information contained in these
(and other) engineering documents related to setting speed limits; however, some important points that
form the basis for speed limit setting are summarized below:
• The primary purpose of the speed limit is to advise drivers of the maximum reasonable and safe
operating speed under favorable conditions. It provides a basis for enforcement and ought to be
fair in the context of traffic law.
• The normally careful and competent actions of a reasonable person should be considered legal.
• Laws cannot be effectively enforced without the consent and voluntary compliance of the public
majority.
• The majority of drivers respond in a safe and reasonable manner as demonstrated by their
consistently favorable driving records.
Using these fundamentals, which are rooted deeply in government and law, has resulted in the commonly
accepted practice in the United States (and elsewhere) of relying heavily on the 85th percentile speed as
the basis for setting an appropriate speed limit. Numerous studies over decades of practice have shown
that the speed at which 85% of the drivers travel at or below is typically a reasonable speed limit. This
method is referred to as the Operating Speed Method and relies on the collective judgement of the
traveling public to determine what a reasonable and safe speed is for the road under favorable conditions.
The MUTCD states that the speed limit should be set within 5 mph of the 85th percentile speed of free-
flowing traffic. Many agencies will adjust the speed limit downwards by 5 mph and typically no more
than 10 mph from this speed to account for hazards or conditions that a driver, even one acting
responsibly, may not be aware of. These conditions can include:
• Narrow pavement widths of less than 20 feet
• Horizontal and vertical curves that may limit sight distance
• Driveways with restricted sight distance or other developments
• High driveway density resulting in higher potential for conflict
• High pedestrian and bicycle traffic in developed areas
• Narrow shoulder widths
• High crash rates when compared to system averages
There is no published methodology that recommends setting the speed limit below the 50th percentile
speed.
The Operating Speed Method is appropriate for collector and arterial roadways where mobility of traffic
is a prime consideration. The usefulness of this method tends to decline when considering residential
streets of short length where mobility of through traffic (as expressed by trip time) is less of a priority
than managing the roadway environment for the benefit/safety of adjacent properties and roadside users
(pedestrians/bicyclists). As a result, many cities set statutory speed limits of 25 mph (for example) on all
residential streets which has the benefit of creating a consistent expectation for drivers and also reduces
the amount of signage required to post various speed limits.
Finally, it should be noted that:
• Speed limits are not set to account for the worst condition that exists along a road segment. Short
sections with adverse conditions, such as curves, can/should be posted with advisory speeds.
These are signs with black text on yellow backgrounds which are not regulatory in nature.
• Setting speed limits too far below the 85th percentile speed encourages drivers to ignore speed
limits, does not encourage compliance with the posted speed limit, and can be difficult to enforce.
Speed Change Report Shine Road 2018 Page 4
• Setting unrealistically low speed limits can create its own hazard due to differential speeds
between drivers attempting to obey the low speed limit and those ignoring it. Differential
operating speeds lead to unsafe passing and tailgating.
SPEED AND TRAFFIC STUDY
Jefferson County Public Works routinely performs speed studies on county roads to aid in enforcement
and to respond to inquiries regarding the speed limit. A speed study was conducted on Shine Road in
June and July of 2018. The study consisted of placing equipment on the road at MP 0.62 and MP 1.30
over the period of time typically lasting for a week and covering at least one weekend. The speed data
from MP 1.86 is from an earlier study conducted in 2005. Data was downloaded into software that
performed the analysis and reported the results in table and graphical formats. This data is available in
Appendix “C”. A summary of the study is shown in the table below.
The graph below shows a typical output from the traffic study software. This is data from Shine Road
MP 1.30 collected over one week in July, 2018. From this chart one is able to quickly see that more than
70% of the traffic is currently traveling over 25 mph. Approximately 17% is traveling over 35 mph. The
85th percentile speed is 36 mph at this location.
Milepost 0.62 1.30 1.86
85th Percentile Speed (mph)37 36 44
50th Percentile Speed (mph)29 29 38
10 mph Pace Speed (mph)25-35 25-35 35-45
Year 2018 ADT (Daily Trips)239 285 N/A
Year 2005 ADT (Daily Trips)211 N/A 303
Shine Road Speed Study Results
Speed Change Report Shine Road 2018 Page 5
The average daily traffic counts are as follows:
These counts are the sum of the trips in both lanes, and generally the counts are evenly distributed in each
direction. So for example at MP 0.62 the total traffic on any given day would average 118 in one
direction and 121 in the other direction for a total of 239. Traffic counts taken over the last decade have
shown little increase in road use which corresponds to a relatively slow pace of development in this area.
Nationally, roads with an ADT of less than 400, such as Shine Road, are considered to be “very low
volume roads”.
Recently, the County has received reports from residents living along Shine Road indicating that drivers
from SR-104 are using Shine Road to cut ahead in line when the Hood Canal Bridge is closed for a span
opening for marine traffic. Some believe that perhaps map applications on cell phones are actually
directing drivers to use Shine Road as an alternate route. Such driver behavior could certainly increase
traffic on Shine Road. Although the traffic counters in 2018 were in place during several bridge closures,
there was no marked increase in traffic detected. This is perhaps because the conditions were not “right”
for this to occur. Presumably, for the cut through option to manifest itself, the bridge closure (or
“opening” if you will) needs to correspond to a peak hour on a peak weekend day when traffic backs up
far enough to make the western Shine Road intersection an attractive distraction for drivers waiting on
SR-104. These conditions may not have occurred during the recent traffic study.
Some residents have requested “Local Traffic Only” signage be installed to address this issue. Further
discussion of this is contained later in this report.
ROADWAY CHARACTERISTICS
Shine Road characteristics are summarized in the table below which is for a driver proceeding from west
to east (MP 0.00 towards MP 2.34).
MP 0.62 MP 1.30 MP 1.86
2005 211 -303
2010 220 -377
2016 234 -320
2018 239 285 -
Shine Road Average Daily Traffic Counts
BEGIN END WIDTH OF L. GRASS R. GRASS
MP MP DESCRIPTION PAVEMENT (FT)SHOULDER (FT) SHOULDER (FT)
0.00 0.10 90 degree curve left 18.5 1 3
0.10 0.30 Gentle left curve to tangent 18.5 1 3
0.30 0.40 Tangent -begin drop off to beach right side 18.0 0 3
0.40 0.65 Crest vertical curve restricts sight distance at MP 0.40 17.0 1 2
0.65 0.80 Very severe drop off to beach a few feet off pavement 17.0 0 0
0.80 0.90 Concrete barriers; no shoulder; crest curve restricts sight 17.0 0 0
0.90 1.10 Horizontal/Vertical curves; Advisory speed 25 mph 16.5 1 1
1.10 1.30 Drop off to beach on rt. side ends; crest curve restricts sight at MP 1.30 16.5 1 1
1.30 1.60 Tangent 16.5 1 1
1.60 1.80 Steep hill; crest curve restricts sight at MP 1.7 to MP 1.8 16.5 1 1
1.80 2.10 Begin 2-lane road 21.0 1 2
2.10 2.34 Curves right and left w/ 30 mph advisory; crest curve at 2.1 restricts sight 21.0 1 3
Both reported accidents occurred in these curves
SHINE ROAD CONDITIONS
Speed Change Report Shine Road 2018 Page 6
Shine Road is a chip sealed road that is 2.34 miles in length. Mile post 0.00 begins at the west end with its
intersection at SR-104. There is no centerline stripe from MP 0.00 to MP 1.80 because the paved width is
generally 18 feet or less and thus too narrow to support one. In 2018 the road was chip sealed and fog
sealed. White edge lines were added for the first time from MP 0.00 to MP 1.80 to provide for additional
safety by making the road edge more visible and also to emphasize that the road is not really a full two
lanes wide. This may have the added benefit of reducing traffic speeds, at least for some drivers, by
reminding them that they are on a very narrow road.
Road shoulders are grass with a usable width typically ranging from zero (0) to three (3) feet. The section
between mile post 0.65 and mile post 1.30 is characterized by steep to vertical drop offs to the beach just
beyond the road shoulder. The zone between the pavement and drop off is so narrow that in many places
it would not be feasible to even install guardrail if it were warranted. At mile post 1.8, there are concrete
barriers on the edge of the road due to bank erosion that has encroached into the road shoulder. In many
areas, there is very little road shoulder between the pavement and drainage ditches on the left side of the
road. The drainage ditches are important to route water away from the road base and bluff on the other
side, but unfortunately through this half mile section the road is extremely constrained between the
ditches and the bluff edge.
Shine Road after the addition of white edge lines in October, 2018
Speed Change Report Shine Road 2018 Page 7
Between mile post 1.00 and 1.10 the road exhibits adverse horizontal and vertical alignment which
restricts sight distance. Combined with the narrow width, this section has a higher than average potential
for traffic conflicts and is therefore posted with an advisory speed of 25 mph. This should be lowered to
20 mph.
Advisory speeds of 25 mph to 30 mph are located on sections with adverse horizontal and vertical
alignment and account for approximately 20 percent of the overall road length currently. If the speed
limit is lowered, there will be no warrant for posting advisory speeds; however, the section between MP
1.00 and MP 1.10 should continue to display an advisory speed sign.
Shine Road has five crest vertical curves that restrict sight distance for drivers to varying degrees. It was
beyond the scope of this study to evaluate sight distance at each of these to determine whether they meet
minimums at the current speed limit of 35 mph. If the speed limit is reduced to 25 mph, sight distance
will be less of a concern at these locations.
Shine Road at MP 1.10 Concrete barriers MP 0.82
ROADSIDE DEVELOPMENT
Roadside development is residential in nature along this segment of road. There are no commercial
developments. There is one small County park at MP 1.09 (R) consisting of a small boat ramp. There are
52 driveways intersecting Shine road. In addition, there are 10 county road intersections connecting to
Shine Road. Many of the driveways and most of the intersecting county roads serve multiple addresses.
The equivalent intersection density is 27 per mile; however, considering there are very few intersections
past MP 1.73, the road is typically characterized by an intersection density approaching 34 per mile,
Speed Change Report Shine Road 2018 Page 8
which is relatively high for a county road. Given that a mile of road (5,280 feet) has two edges, there are
10,560 feet of road edge per mile. Dividing this by 34 yields an average driveway spacing of 310 feet.
CRASH HISTORY
The crash history shows a very low accident rate of 0.63 per million vehicle miles traveled versus the 1.22
average for Jefferson County and 2.20 for the average of county roads nationally. Both reported crashes
occurred in the curves at the easterly end of the road where the road actually has a full two lanes marked
by a centerline stripe and usable grass shoulders.
Typically the recorded crashes under-report the actual incident occurrence since some drivers may be able
to extricate their vehicle before it is ever reported to law enforcement. For example, residents provided a
photo of a pickup/trailer in a ditch recently which does not show up in the accident record since it was
never reported. There is also no way to record near misses and “close calls” which road users and
neighbors often cite as a reason for concern. This is not unique to Shine Road.
PEDESTRIAN USE
Property owners living along Shine Road indicated in comments supporting the speed limit reduction that
the road is heavily used by pedestrians. Although Public Works has conducted no actual pedestrian
counts, it is not unusual to see pedestrians using this stretch of roadway. For example, during a 30 minute
site visit performed to collect information for this study, several groups of pedestrians were observed
walking their dogs on the road. It is obvious that pedestrians are using this road. By its nature, many
property owners living on the north side of the road must walk down and across the road to access
stairways to the beach on the south side and Hicks Park which is located centrally to the neighborhood.
Also as is typical, mail is delivered in one direction only and so all of the mail boxes are on one side of
the road only (south side) requiring many property owners to cross the road to retrieve their mail. Road
shoulders for much of Shine Road are virtually non-existent to the point of being unusable for
pedestrians. As such, walkers use the traveled way of the road as reported.
DISCUSSION
Speed Limit
The Operating Speed Method of setting speed limits described earlier in this report would suggest that the
existing speed limit of 35 mph is acceptable. The reported accident rate is very low and the 85th
percentile speed is 36 to 37 mph. It is commonly accepted practice however to reduce speed limits below
the 85th percentile speed to account for hazards or conditions that a driver might not be aware of. Shine
Road exhibits nearly all of these conditions including its narrow width that is less than a full two lanes;
the lack of usable road shoulder and drop offs just beyond what shoulder there is; high driveway density;
and pedestrian use. The only reason that this road is not exhibiting a larger problem, as would be
reflected in a higher accident rate, is due to its very low traffic numbers. Most drivers are probably using
the middle of the road, shying away from the edges, and then slowing down considerably when
encountering an oncoming vehicle.
MP DATE CRASH TYPE SEVERITY SURFACE LIGHT TIME ALCOHOL CITATION
2.28 3/3/2005 Crossed centerline/left roadway/over embankment PDO DRY DAY 14:25 Yes Yes
2.096 1/15/2016 Curve /B/onto WB shoulder/left roadway into ditch PDO WET DARK 23:50 Unknown Unknown
SHINE ROAD CRASH HISTORY
Speed Change Report Shine Road 2018 Page 9
It is unusual to post a speed limit below the 50th percentile speed. Doing so means that over half the road
users currently would be breaking the law. The 50th percentile speed on Shine Road is 29 mph which
would suggest that 30 mph could be an appropriate speed limit for this roadway. On the other hand, as
mentioned earlier in this report, many agencies statutorily set 25 mph speed limits on roads that are
considered “residential”. This is not the case in Jefferson County but in practice many of the County’s
residential streets have been posted this way. There is no official definition of what constitutes a
“residential” street although it would be hard to argue that Shine Road does not have many of the features
that would make it one. By way of comparison, the residential loop formed by Woodland Drive and
Parkridge Drive was set at 25 mph when it was constructed as is appropriate for a residential area. This
1.5 mile road has very low intersection density nowhere close to the 34 per mile of Shine Road.
Woodland and Parkridge are two-lane roads 22 feet in width with generous gravel shoulders and no
roadside hazards. Having a road system with these characteristics posted at 25 mph while Shine Road is
posted at 35 mph is inconsistent and does not make sense.
When conducting speed limit studies, Jefferson County Public Works typically uses the computer
program USLIMITS2 made available by the Federal Highway Administration. This program tries to
bring objectivity to this process using an “expert” method that considers the 85th percentile and 50th
percentile speeds and factors in the many variables that can also affect speed limits. This program yields
a recommended speed limit of 30 mph for Shine Road; however the program may be of limited usefulness
on Shine Road because it is intended to be used for a two lane road. If Shine Road were actually a full
two lanes, then 30 mph would undoubtedly be a reasonable speed limit for this road, but Shine road is not
a full two lane road except from mile post 1.80 to mile post 2.34 and even most of that section is
characterized by continuous curves. USLIMITS2 could be interpreted to support a 25 mph speed limit
since the result it produces for a two lane road should be further reduced by 5 mph due to the narrowness
of Shine Road. Output from USLIMITS2 can be found in Appendix “D”.
As a final check, the road was driven by Public Works staff multiple times in both directions to determine
whether the proposed speed limit of 25 mph is appropriate. Driving at 25 mph felt appropriate for the
residential nature of this neighborhood, especially given the constraints of the narrow roadway. When
encountering traffic coming from the opposite direction, it was necessary to slow down below 25 mph
and in some places to actually pull over and come to a stop to allow oncoming traffic to pass.
While the two-lane section at MP 1.80 to MP 2.34 could be posted at 30 mph, it is recommended that the
entire road have a single speed limit to avoid confusion. Since the two-lane section is almost entirely
characterized by curves this is not an unreasonable speed limit for this section either.
The difference in travel time for a driver traversing the entire 2.34 mile length of Shine Road at 25 mph
versus 35 mph is 96 seconds.
Speed Enforcement
As part of this investigation, Public Works reached out to the Jefferson County Sheriff’s Office (JCSO) to
get an opinion as to the appropriate speed limit for this road. JCSO has responded to multiple requests for
speed enforcement on this road; however, with the current speed limit of 35 mph is unable to make much
of an impact on reducing speeds. JCSO has indicated that a 25 mph speed limit is appropriate for this
section of road and will give them the ability to perform enforcement targeted at changing driver behavior
at this location.
Fines
Fines for speeding in Washington State currently range from $125 for 5 mph over to $423 for 35 mph
over in zones posted with a speed limit of less than 40 mph. If the speed limit is lowered to 25 mph on
Shine Road, a driver could be fined $136 for driving at 35 mph.
Speed Change Report Shine Road 2018 Page 10
Signage and Education
Residents along Shine Road have requested more enforcement and suggested the use of activated speed
feedback signs such as the one shown below.
Studies have shown that these signs can be effective; however, they are expensive and the number of
requests for these signs would make them cost-prohibitive to own/operate/maintain for the County. The
JCSO has purchased two of these signs with a grant and partnered with Public Works to install them on a
rotating basis at various locations throughout the County. They are typically left in place for 6 to 8
weeks. Vandalism has been a problem and the effort to install them is significant. There is some
evidence that the signs are more effective on a system-wide basis when moved around so drivers do not
become accustomed or immune to them in the same place. JCSO also has a trailer with one of these signs
which was purchased by Public Works to help with speed education and enforcement. Use of
permanently installed speed feedback signs should be prioritized and reserved for high traffic areas with
significant pedestrian use such as school zones in order to justify their expense. Shine Road is a very low
volume road and would not be a high priority location for permanent installation. Use of the temporary
signs and/or trailer would be appropriate after the speed limit is changed. JCSO has intentionally held off
on using these signs prior to a speed limit change to avoid educating drivers to the current higher speed
limit of 35 mph.
Speed limit signage consisting of aluminum signs on steel posts should be permanently mounted at either
end of Shine Road sufficiently far from the intersection with SR-104 that drivers can clearly see them.
They should not be installed too close to the intersection where they would be missed by a driver
concentrating on completing the movement from SR-104 onto Shine Road. In addition, speed limit
signage should be posted in both directions near the center of the 2.34 mile long segment. Curve warning
signage will no longer be required with a 25 mph speed limit; however it is recommended that advisory
warning signs with a 20 mph advisory speed be retained at the section of adverse alignment located at MP
1.00 to MP 1.10.
Local Traffic Only
The citizen petition identified as a problem the use of Shine Road as an alternate route by drivers when
SR-104 is backed up. The petition stated that this is creating increasingly hazardous conditions. Several
Speed Change Report Shine Road 2018 Page 11
commenters suggested that the road should be posted for “Local Traffic Only” presumably to make it
illegal to use for cut through traffic.
The County does not have the legislative authority to close roads to certain members of the public based
upon their intended destination. RCW 47.48.010 allows the Board to close roads to certain classes of
vehicles usually for weight or size such as for seasonal restrictions or bridge weight restrictions. Roads
can be closed temporarily for construction or permanently due to hazards or the impracticality of
repairing them. Closed roads may sometimes be posted with advisory signage designed to encourage
“local traffic only” to proceed beyond the closure point in order to reduce traffic in construction areas or
because there is no turnaround available. Such signage is unenforceable and only advisory in nature.
There is no legal definition of what “local” traffic is, and it is not possible for law enforcement to pull
over a driver based upon their suspected destination. There are reports of some cities attempting to post
“local access only” signage without much success for the reasons listed above. Furthermore, installing
this type of signage establishes a poor precedent for an agency since it will soon be flooded with requests
for similar signs on other roads.
Traffic from SR-104 should not be using Shine Road to access the Hood Canal Bridge. Public Works has
reached out to the Washington State Department of Transportation (WSDOT) and suggested that advisory
signage could be placed on SR-104 with a clear message such as “Bridge Traffic – Do Not Use Shine
Road”. Public Works would be willing to install this sign at County expense. There is precedent for
similar advisory signage on the other side of the Bridge which reads “Do Not Block Driveways” installed
at MP 59 on SR-3. Public Works will continue to work with WSDOT on this concept.
RECOMMENDATION
• It is recommended that the maximum speed limit be lowered to 25 MPH for the entire length of
Shine Road (MP 0.00 to MP 2.34) based on the roadway characteristics and operating
characteristics described in this report. This may be accomplished by holding a public hearing to
update “Exhibit A” which is part of Jefferson County Code 10.05.040.
• Temporary speed feedback signs/trailer should be used for 6 to 8 weeks after the speed limit is
changed. JCSO should then perform some targeted speed enforcement.
• Public Works should continue to work with WSDOT to install signage discouraging Hood Canal
Bridge cut through traffic.
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.
Yes to Speed Reduction
Shine Road Speed Change Request
0 0.25 0.50.125 Miles
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