So the speed limit may be 25 but if the prevailing traffic indicates that everyone thinks 40 is OK then you can't get ticketed for keeping up with traffic.
I see this issue come up all the time in Palo Alto where I live: people want the speed limit enforced on, say, Embarcadero Rd, but if the the city were to do so they'd have to do a traffic survey which would actually tell them to raise the limit on the signs.
There was a wave of sensible lawmaking in California that was sadly abandoned in the Wilson+ era and has never come back.
+ I don't mean Wilson was the cause, though he was a bad one; he got elected in part because people forgot about being sensible in the regard.
oh! that probably explains why i never in the almost 20 years here got tickets in such a situation, and i thought that i'm just good at spotting police cars (and slamming on the brakes each time i see a one) - here they are much easier to spot because they don't hide cheetah style in roadside bush like the traffic policemen do back in Russia.
Also in California "speed traps" are illegal: this is when a highway runs through a town or district and the district puts up a sudden "25 MPH" sign so they can catch out of towners and charge them money.
Adding too many lights and stop signs speeds traffic up rather than slowing it. Fortunately Cal. seems still (mostly) to hew to the "listen popular opinions to decide what to focus on; listen to actual domain experts to decide what action to take".
The worst of it is that all the infrastructure is in place already for average speed enforcement on toll roads, since you know when everyone gets on and off the highway and all their license plates. But isn't the whole point of a toll road that you pay for the privilege of being out of traffic and going as fast as you can? Who wants to pay for a toll transponder only to get a bunch of speeding tickets in the mail the next month?
Heck, maybe it's time to go back to 55 as a federal limit. Last I checked, most vehicles on the road get dramatically better gas mileage at 55. Rather, it gets exponentially worse as speeds increase past 60ish due to wind resistance.
Hard limits are strange for things that are continuous and probabilistic. If we could set an automatic fee equivalent to the cost of increased risks, pollution, etc., it'd be a function of speed. Someday we'll have the technology to communicate that back to the driver as they change speed and location from urban to rural, go through construction zones, etc.
Of course, setting an appropriate gasoline tax, paid at the pump, would reduce the value of those fees.
Data doesn't back you up. In places where they have raised the speed limit, the overall flow speed does not increase correspondingly.
People drive at the speed they deem safe irrespective of the speed limit.