This paper presents an empirical study of the fundamental relationship between speed, v, and flow, q, (denoted vqFR) under low flow in the uncongested regime. Using new analytical techniques to extract more information from loop detector data, the vqFR from a time of day HOV lane exhibits high v that slowly drops as q increases. This curve arises after binning several million vehicles by q and only considering those bins with q < 1200 vph. A surprising thing happens when further binning the data by the adjacent lane speed (v2): the vqFR expands in to a fan of curves that decrease in magnitude and slope with decreasing v2. Yet each curve in the fan continues to exhibit uncongested trends, ranging from a flat curve consistent with recent editions of the Highway Capacity Manual to downward sloping curves. It is shown that this behavior was not due to the HOV operations per se, the same behavior also arises in the non-HOV period when the lane serves all vehicles and it is also observed at another facility without any HOV restrictions. This dependency on the adjacent lane is absent from most traffic flow theories. Taking a broader view, four different factors appear to limit the speed a driver takes: (i) the roadway geometry, (ii) the posted speed limit, (iii) the vehicle ahead (car following), and (iv) traffic conditions in the adjacent lane. Whichever constraint is most binding determines the driver's speed. While the first three constraints are found in the literature, this work contributes the fourth, as per above. When the speed limit is the most binding constraint the uncongested regime of the vqFR is roughly flat with a near constant speed over a wide range of q. When the roadway geometry is the binding constraint, e.g., due to the lack of speed limits, drivers are able to travel fast enough to be sensitive to the vehicle ahead and exhibit lower v as q increases. Car following is by definition in the congested regime and thus, beyond the scope of this paper. Finally, the present work shows that as the adjacent lane moves slower, the uncongested drivers choose speeds below the speed limit and once more exhibit lower v as q increases. Although the chosen v is below the speed limit, the drivers continue to exhibit behavior consistent with the uncongested regime. [ABSTRACT FROM AUTHOR]