[DrScump]

You're confusing highway with freeway.

A highway, as defined in the CVC, is the generic term for any public road on which the Vehicle Code applies, even if it's one lane each way: '360. “Highway” is a way or place of whatever nature, publicly maintained and open to the use of the public for purposes of vehicular travel. Highway includes street.'

As for the speed limiter, a 25 MPH hard limit is ridiculous unless they were limiting usage to streets with a 25MPH limit.