Or the yellow signal interval is too short.
Yellow time >=( stopping distance for 'normal' braking in 'normal' road conditions)/ (speed limit) + reaction time.
Could replace 'normal' with 'adverse', but drivers should drive slower when roads are bad.
Edit:
From this definition, a 55 MPH braking event needs to be 8.2 seconds to avoid a demerit. This is 225 feet.
The federal standard for yellow lights is 3-6 seconds:
Yellow Light Time Standards | Stop Short Yellow Lights
6 seconds at 55MPH is 484 feet, 3 seconds is 242 feet, so one hopes the lights are speed adjusted.
Note that the value in the safety formula is proportional to total time braking (more than 0.1G) so one can improve the value if a yellow light got them.
Though, at 1.127294^(hard braking ratio), 100% hard braking should only be a 12.7% increase in the PCF factor, not enough on its own to trigger unsafe ratings (2 points if everything else is ideal).