WORK SESSION ITEM City Council

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1 DATE: STAFF: February 12, 2019 Tessa Greegor, FCBikes Program Manager Paul Sizemore, FC Moves Senior Manager WORK SESSION ITEM City Council SUBJECT FOR DISCUSSION Pilot Program Allowing E-bikes on Paved Trails. EXECUTIVE SUMMARY The purpose of this item is to seek direction from Council on a proposal to implement a one-year pilot period to allow Class 1 and Class 2 electric-assist bicycles (e-bikes) on City paved trails. This proposal was initiated by recommendations from the City s Transportation Board and Bicycle Advisory Committee in response to the growing popularity of e-bikes and their potential benefits, and Colorado s adoption of new e-bike regulations in 2017, which allow Class 1 and Class 2 e-bikes on bicycle and pedestrian paths unless otherwise prohibited by the local jurisdiction (currently the case in Fort Collins). Most other Colorado jurisdictions now allow e-bikes on their trail systems. Following the recommendations from the Transportation Board and Bicycle Advisory Committee, staff formed a cross-departmental team to investigate the relevant issues, determine how other cities are managing e-bikes, develop a proposed framework for an e-bike pilot program, and gain input from associated boards and commissions. The proposed pilot program was presented to nine City boards, commissions and committees; seven have passed recommendations in favor of the implementation of a one-year pilot program to allow e-bikes on paved trails, and the remaining two are expected to take action in early February. GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED 1. Does Council have any questions or concerns regarding the proposed electric-assist bicycle (e-bike) pilot program? 2. Should staff bring an ordinance to allow a one-year pilot program forward for consideration? BACKGROUND / DISCUSSION Recommendation In response to recommendations from City Boards and Commissions, a growing popularity of e-bikes and their ability to increase access to bicycling, and new e-bike regulations in Colorado, staff recommends that Council implement a one-year pilot program to allow and evaluate e-bikes on all City of Fort Collins paved trails. Staff recommends the pilot program be limited to Class 1 and Class 2 e-bikes (and not Class 3 e-bikes or other electric devices), and that the pilot program only apply to paved trails (and not unpaved trails). The proposed pilot program would include extensive education, outreach and data collection. The data and public input would be summarized and presented to Boards & Commissions and ultimately City Council to determine if the pilot program should be extended, modified, terminated or made permanent. Background In , City Council engaged in discussions around e-bikes that led to the adoption of the current regulations in Fort Collins, which allow use of e-bikes in City recreation areas, including on trails, only by those

2 February 12, 2019 Page 2 with temporary or permanent disabilities. During this time, Council also considered implementation of a trial period to allow e-bikes on paved trails and ultimately voted against its implementation. In August 2017, Colorado passed House Bill concerning the regulation of e-bikes; this law establishes three classes of e-bikes, defines e-bikes as bicycles, and allows the operation of Class 1 and Class 2 e-bikes on bike or pedestrian paths unless local governments prohibit such use. Following adoption of this new state law, the City s Bicycle Advisory Committee (BAC) researched the topic of allowing e-bikes on Fort Collins paved trail system. In April 2018, the BAC submitted a recommendation to the Transportation Board in support of a pilot program to allow and evaluate the use of Class 1 and Class 2 e-bikes on Fort Collins paved trails. (Attachment 2) Following this recommendation, the Transportation Board requested staff develop a framework for an e-bike pilot program for their consideration. Staff from FC Moves, Natural Areas, Parks, and Park Planning & Development developed a proposed framework for this pilot program, which was subsequently presented to the following Boards & Commissions for their consideration and action: Transportation Board (support 7-1), August 2018 Commission on Disability (action pending special meeting scheduled for February 7, 2019), September 2018 (initial staff presentation) Natural Resources Advisory Board (unanimous in support), October 2018 Land Conservation & Stewardship Board (6-1, in support of a modified version of the proposed pilot program, recommending Class 1 e-bikes only and including specific criteria for the evaluation), October 2018 Senior Advisory Board (unanimous in support), November 2018 Parks and Recreation Board (unanimous in support), December 2018 Air Quality Advisory Board (unanimous in support), January 2019 Youth Advisory Board (pending scheduled for February 6, 2019) While there was support for the pilot program from the associated boards and commissions, specific questions and concerns have been raised throughout the outreach process regarding the presence of e-bikes on trails. Areas of concern include enforcement, trail congestion, safety and speeds, other e-devices, and potential threats to soft-surface trails. This feedback helped to inform the structure of the proposed pilot program, and where possible, staff plans to collect data and conduct education around these areas of concern if the pilot program moves forward (further detailed in the Pilot Program Framework section and Attachment 1). Existing E-bike Regulations in Colorado Under Colorado law, an electric bicycle is defined as a bicycle with two or three wheels, fully operable pedals, and an electric motor that does not exceed 750 watts. Colorado law further regulates e-bikes according to the following: E-bikes are required to conform to one of three classifications outlined in Table 1 and must be labeled accordingly. Class 1 and Class 2 e-bikes are allowed on the same bicycle and pedestrian paths as conventional bikes. Local jurisdictions have the authority to prohibit the operation of e-bikes on any bicycle or pedestrian path in their jurisdiction. E-bike riders are exempt from motor vehicle registration and license requirements. Class 3 e-bikes include age restrictions and require the use of helmets for people under the age of 18. Fort Collins City Code defines and classifies e-bikes consistently with State law (Table 1), however City Code prohibits the use of e-bikes while the motor is engaged on a bike or pedestrian path or on a recreational trail unless the user has a temporary or permanent mobility disability. Table 1: Classification of E-bikes (Colorado and Fort Collins Regulations) Electric Bicycle A bicycle with two or three wheels, fully operable pedals, and an electric motor that Definition does not exceed 750 watts.

3 February 12, 2019 Page 3 Class 1 Class 2 Class 3 An electrical assisted bicycle that is equipped with an electric motor that provides assistance while the rider is pedaling up to 20 miles per hour. An electrical assisted bicycle equipped with a motor that provides assistance regardless of whether the rider is pedaling but ceases to provide assistance when the bicycle reaches a speed of 20 miles per hour. An electrical assisted bicycle equipped with a motor that provides assistance only when the rider is pedaling and that ceases to provide assistance when the bicycle reaches a speed of twenty-eight (28) miles per hour. With the adoption of HB most Colorado jurisdictions now allow operation of e-bikes on paved trails. For example, Class 1 and Class 2 e-bikes are allowed on paved trails in Larimer County, Loveland, Longmont, and Boulder. Attachment 9 highlights Colorado jurisdictions where e-bikes are allowed on paved trails and where pilot programs have been successfully implemented. Proposed E-Bike Pilot Program Framework Purpose: Staff recommends City Council implement a one-year pilot program to allow and evaluate Class 1 and Class 2 e-bikes on paved trails to: Assess public opinion and perceptions around allowing e-bikes on paved trails. Collect data to understand impacts to trail user experience and safety. Measure changes to bicycle utilization on trails. Increase awareness of proper trail etiquette and trail use laws. Collect comprehensive data to be able to report back in areas of concern. Justification: The primary reasons for staff s recommendation are as follows: Research suggests the use of e-bikes can increase bicycling, improve health, replace trips otherwise made by car, and help people overcome common barriers to riding a traditional bike. Fort Collins trail network offers extensive regional connectivity allowing e-bikes on these trails provides people the option to travel farther distances by bike. Allows for consistency across neighboring jurisdictions. Communities that have implemented e-bike pilot programs have made the laws permanent following the trial period. Where e-bikes are allowed on paved trails in Colorado jurisdictions, communities have not expressed experiencing significant challenges or negative outcomes. Conducting a pilot program allows Fort Collins to collect data to determine if there are negative consequences. Table 2: Proposed E-bike Pilot Program Framework (further details in Attachment 1) Geographic Scope All paved multi-use trails managed by the City. All paved trails are recommended versus a subset of paved trails in order to collect comprehensive data including different trail contexts and configurations and to avoid user confusion with a patchwork of regulations. E-bike Types Class 1 and Class 2 e-bikes (electric assistance ceases at 20 mph). Staff does not recommend extending this to other electric devices such as e-scooters as e-bikes are clearly defined in the code as bicycles (unique to other devices) and the pilot program outreach has been specific to e-bikes. Other devices could be considered at another time if desired. It should be noted that the Land Conservation and Stewardship Board recommended the pilot program only include Class 1 e-bikes (requires the rider to be pedaling). Staff is recommending Class 1 and Class 2 as this is consistent with state legislation and neighboring jurisdictions, their top speed is the same at 20 mph, and enforcing or distinguishing between the two classes would be challenging.

4 February 12, 2019 Page 4 Pilot Duration Education and Outreach One year with a 9-month evaluation period Extensive education and outreach will be conducted in coordination with the City s FC Moves, Natural Areas, Parks, Park Planning & Development, and Police Services Departments. In addition, staff will collaborate with regional partners (including Larimer County), local bike shops, local bicycle organizations, and CSU to assist with the education and outreach campaign and ensure consistent messaging. Proposed education and outreach strategies include: Educational brochures and handouts distributed through retailers and at events E-bike specific signage on trails Trail etiquette signage on trails Press releases FCTV video Website information Social media and communications Trail pop-up education and outreach events E-bike demo days Data Collection Data will be collected to assess safety, trail experience impacts, perspectives on allowing e- bikes on paved trails, and overall trail use. The following methods are proposed for data collection: Speed snapshots Observation study Trail Ranger observations Crash or incident reports Noise assessment Online survey and trail surveys Trail counts Retail sales General comments and feedback Enforcement Parks and Natural Areas Rangers are responsible for patrolling City Natural Areas, Parks and Trails to ensure safe and responsible use of these areas. Rangers are commissioned to issue warnings as well as citations as it relates to improper bicycle use on trails (e.g., reckless and careless riding ), however, do not have the authority in their commission to detain or pursue anyone. Follow-up and further Council action Key Partnerships Staff recommends that the pilot program emphasize the following enforcement strategies: Signage at key locations indicating the types of e-bikes allowed and where Extensive user education and outreach Data collection including speed snapshots to determine if and where problems exist Warnings or citations issued by Rangers when feasible During the pilot program, observational data will be collected by Rangers, other City Staff and volunteers, and the public will have opportunities to report conflicts and provide input. If it is determined the presence of e-bikes on paved trails is contributing to user conflicts or unsafe behaviors, staff will partner with Police Services to conduct targeted enforcement at key locations. Ultimately, the data and feedback collected through the pilot program will help inform if policies and or regulations should be modified. If the e-bike pilot program is implemented, and prior to the expiration of the pilot period, staff will provide Boards, Commission and ultimately Council with all the information gathered during the pilot period. Council can then determine if the pilot program should be extended, made permanent, modified, or be allowed to expire. Internal: Natural Areas Park Planning & Development Parks FC Moves / Bikes Police Services

5 February 12, 2019 Page 5 Estimated Cost City Attorney s Office External: Bicycle organizations Bicycle retailers Colorado State University Public Health Graduate Class (class project would be focused on the e-bike pilot program) Regional partners Estimate: $5,000-$10,000 (not including staff time) Next Steps Given direction from Council, staff is prepared to bring forward an ordinance detailing a one-year pilot program allowing Class 1 and Class 2 e-bikes on Fort Collins paved trails on March 5, Attachment 11 provides a draft ordinance detailing the specific sections of City Code that would need to be amended. ATTACHMENTS 1. E Bike Pilot Program Proposed Framework (PDF) 2. Bicycle Advisory Commitee Recommendation Memo and White Paper (PDF) 3. Transportation Board Minutes and Recommendation, August 15, 2018 (PDF) 4. Senior Advisory Board Minutes and Recommendation, November 14, 2018 (PDF) 5. Natural Resources Advisory Board Recommendation Letter and Meeting Minutes (PDF) 6. Land Conservation & Stewardship Board - Recommendation and Minutes (PDF) 7. Parks and Recreation Board Minutes and Recommendation, December 5, 2018 (PDF) 8. Open Streets E Bike Survey Results June 2018 (PDF) 9. E Bike Regulations in Colorado (PDF) 10. Triple Bottom Line (PDF) 11. Draft Electric Bicycles Pilot Ordinance For Discussion (PDF) 12. Air Quality Advisory Board Minutes and Recommendation, January 28, 2019 (draft) (PDF) 13. Powerpoint presentation (PDF)

6 ATTACHMENT 1 E-bike Pilot Program Proposed Framework City of Fort Collins Table 1: Proposed Pilot Program Scope Pilot Program Proposed Scope Geographic All Paved Multi-Use Trails, managed by City of Fort Collins E-bike types Class 1 and Class 2 E-bikes Pilot Duration One year Data collection period - 9 months Pilot Scope Trail education / etiquette campaign Collect data during the designated period to assess impacts Analyze data and develop findings Present findings to Boards and Commissions, and Council for next steps and policy direction Pre-development Boards and Commissions outreach / public Brief surveys at upcoming events (e.g., Open Streets); E-bike demos input Ongoing data collection during fall bike counts (percentage of e-bikes) Education / Outreach (further outlined below) Evaluation / Data Collection (further outlined below) Trail etiquette messaging (temporary yard signs along trails) Pilot Program specific signage (on trails at key locations) Retail handouts distributed to bike shops Additional courtesy speed limit signs if needed Press releases Videos on FCTV Website and social media advertising Posters / flyers / department materials with educational information Partnerships with bike shops, organizations, and regional entities FC Bikes / Parks / Natural Areas Pop-up events along trails Evaluation will seek to: Assess public opinion and perceptions around allowing e-bikes on paved trails Collect data to understand impacts to trail user experience and safety Measure changes to bicycle utilization on trails Increase awareness of proper trail etiquette and trail use laws Collect comprehensive to be able to report back in areas of concern The Following methods are proposed: Speed snapshots Observation study Trail Ranger observations Crash or incident reports Noise assessment Online survey Trail counts Retail sales Intercept trail surveys 1/31/2019 DRAFT WORKING DOCUMENT 1

7 General comments and feedback Enforcement Signage at key locations indicating the types of e-bikes allowed and where Extensive user education and outreach Data collection including speed snapshots to determine if and where problems exist Warnings or citations issued by Rangers when feasible During the pilot program, observational data will be collected by Rangers, other City Staff and volunteers, and the public will have opportunities to report conflicts and provide input. If it is determined the presence of e-bikes on paved trails is contributing to user conflicts or unsafe behaviors, staff will partner with Police Services to conduct targeted enforcement at key locations. Ultimately, the data and feedback collected through the pilot program will help inform if policies and or regulations should be modified. Follow-up Boards, Commissions and Council Presentation on findings, determination if the pilot program should be extended, made permanent, modified or expired Cost Estimate: $5,000-$10,000 (not including staff time) Key Partners Internal: Natural Areas Park Planning & Development Parks FC Moves / Bikes Police Services City Attorney s Office External: Bicycle organizations Bicycle retailers Colorado State University Public Health Graduate Class (class project would be focused on the e-bike pilot program) Regional partners 1/31/2019 DRAFT WORKING DOCUMENT 2

8 Table 2: Proposed Pilot Program Evaluation Data will be collected to assess safety, trail experience impacts, perspectives on allowing e-bikes on paved trails, and overall trail use. The following methods will be utilized for data collection: Where location-based data is collected, a variety of trail types / configurations will be included. Method Evaluation Data collected Instrument Lead Location / Times Speed snapshots Goal Safety User Speeds Bike Type Mobile radar units FC Bikes 2 x per year Determine locations Observation Study Safety, Trail Experience, Use Counts, mode, type of bike, user demographics, observations related to unsafe trail use (e.g., passing too close, recklessness, speeding, not announcing passing) Observation form FC Bikes / Rangers / Ambassadors 2 x per year Determine locations General Comments General Ranger Observations Perspectives on Pilot Program, Safety, Trail Experience General comments through s, online comment form Safety, Use Ex. How many e- bikes observed, if observed, (1) appropriate behavior, (2) inappropriate/unsa fe behavior (3) location Reported to Access Fort Collins, Parks, Park Planning, Natural Areas, Rangers or FC Moves. Comment form created on website Observation form FC Bikes (other Departments maintain records of comments received) Rangers Ongoing Ongoing 1/31/2019 DRAFT WORKING DOCUMENT 3

9 Table 2 (continued): Proposed Pilot Program Evaluation Method Intercept Survey Evaluation Goal Perspectives on Pilot Program, Safety, Trail Experience, Trip Characteristics Data collected Instrument Lead Location / Times Type of bike, trip purpose, did bike replace other mode, experience w/e-bikes on trails, observations, areas of concern, position on the pilot program, demographics Intercept Survey FC Moves, volunteers 1 x per year Determine locations Incident Reports Noise Assessment Online Survey Safety Trail Experience Perspectives on Pilot Program, Safety, Trail Experience Crashes / Incidents involving e-bikes Noise level of different types of bikes Experience w/ebikes on trails, observations, areas of concern, position on the pilot program Access Fort Collins Police Decibel Readers Unknown Natural Areas / FC Bikes Ongoing 1 x per year Online survey FC Bikes Ongoing Feedback form at popup events Bike Retail Sales (local) Fall Bike / Ped Counts Perceptions, Trail Experience, Safety Use, Trail Experience, Safety Use, Trail Experience, Safety Experience w/ebikes on trails, position on the pilot program, perceptions of e- bikes (following demo) Feedback form Provide demo rides during pop-up events FC Bikes / Natural Areas / Parks Pop-up events 1-2/month during warm weather months Determine locations Local Retail sales Tracking form FC Bikes / Bike Shops 1 x per year % e-bike use Standard bike/ped count form at trail locations (includes e-bike tracking) FC Moves / Volunteers September 1/31/2019 DRAFT WORKING DOCUMENT 4

10 Table 3: Proposed Pilot Program Education and Outreach: Extensive education and outreach will be conducted in coordination with the City s FC Moves, Natural Areas, Parks, Park Planning & Development, and Police Services Departments. In addition, Staff will collaborate with regional partners (including Larimer County), local bike shops, local bicycle organizations, and CSU to assist with the education and outreach campaign and ensure consistent messaging. Proposed education and outreach strategies include: Key Messages Strategies Brochures to retailers / other distribution areas and events E-bike specific signage on the trails Trail courtesy signage Press release FCTV Video Website information Social media Posters / flyers communications Trail pop-up events Other event outreach (e.g., Bike to Work Day, Open Streets) E-bike demo days What is the pilot program, what s allowed, and when/where? How can I provide feedback on the pilot program / e- bikes on trails? Safe trail use and proper etiquette How and where do I report conflicts / crashes? 1/31/2019 DRAFT WORKING DOCUMENT 5

11 ATTACHMENT 2 MEMORANDUM OF RECOMMENDATION BICYCLE ADVISORY COMMITTEE DATE: April 13, 2018 TO: Transportation Board FROM: Luke Caldwell, Bicycle Advisory Committee (BAC) chair, on behalf of the BAC SUBJECT: Allowing electric-assist bicycles on paved trails Recommendation: The Bicycle Advisory Committee supports a pilot study to assess the use of Class 1 and Class 2 electric-assist bicycles on paved trails in Fort Collins. The BAC further recommends staff determine the parameters of this pilot study, including but not limited to: Determine the appropriate trails and duration for this pilot study Develop and ultimately implement a comprehensive evaluation and education plan that includes public outreach and measures success Review current City guidelines/rules applicable to the use of the trail system to determine if changes are necessary Discussion: Allowing electric-assist bicycles on paved trails has the potential to enhance transportation and recreation activities while maintaining a safe environment for all users. Current law only allows people with disabilities to use these bicycles on our paved trails (unless the motors are turned off). Our paved trail system is a vital component of our multi-modal transportation infrastructure that provides safe, efficient means to travel around the city for recreation, commuting, or other purposes. There is a broad range of trail users from horse riders to bicyclists to pedestrians. We recognize the importance of maintaining an enjoyable experience for all users without adversely impacting others. Allowing electric-assist bicycles on our paved trails may help meet City goals, such as the Climate Action Plan. This type of bicycle can reduce automobile use by enabling longer bicycle commutes (Dill and Rose 2012) 1, encourages a healthier community through more physical activity, and increases accessibility for seniors and less physically capable members of our community. 1 Dill, J., & Rose, G. Electric Bikes and Transportation Policy: Insights from Early Adopters, Transportation Research Record: Journal of the Transportation Research Board, No. 2314, Transportation Research Board of the National Academies, Washington, D.C., 2012, pp. 1 6.

12 The BAC submitted a fact-based white paper regarding electric-assist bicycles to the Transportation Board in September We then solicited feedback, heard concerns, and answered questions regarding this white paper from the Natural Resources Advisory Board, Commission on Disability, Senior Advisory Board, Land Conservation Stewardship Board, Air Quality Board, and Parks & Recreation Board. All consulted boards and the one commission supported a pilot study while expressing speed-related safety concerns and concerns about compatibility with other trail users. The BAC agrees safety is paramount, and these concerns are our primary reason for supporting a pilot study rather than a permanent change. However, existing data from other cities does not support the perception that electric-assist bicycles create additional safety issues. No studies were found in our research that demonstrated electric-assist bicycles decrease public safety. Our research found no documented cases of crashes involving these bicycles that resulted in death or serious injury in the U.S. The City of Boulder has allowed electric-assist bicycles on their paved trails for four years with no collisions or personal harm documented. In Colorado, electric-assist bicycles have been approved for paved trail use in Boulder, Colorado Springs, Superior, Larimer County, Loveland, Grand Junction, and Louisville. One-year trail system pilot studies have started in Glenwood Springs, Durango, and Jefferson County Open Space. Many of these communities implemented a trial period or pilot study following the change to state law in August 2017, demonstrating rapid uptake across the state. Evidence suggests electric-assist riders move and behave similarly to traditional bicycle users. A study (Langford et. al., 2015) 2 in Nashville, TN, from found electric-assist bicycle riders exhibit nearly identical safety behavior as traditional bike riders. While riding on streets, electric-assist bicycle riders went, on average, 1.8 mph faster than those on traditional bikes but went 1 mph slower than those riders on trails. In the opinion of the BAC, this demonstrates that the majority of electric-assist bicycle users respect rules and exhibit common courtesy to others just as the majority of all trail users do. The average electric-assist bicycle user is between years old, and these users are likely not purchasing them for speed, but instead for ease of recreation, commuting, and general transportation (Peopleforbikes.org). 3 Another study (Plazier et. al., 2017) 4 found that when electric-assist bicycles were used as a substitute for motorized commuting, study participants were willing to accept longer bicycle commuting times. Electricassist bicycles provide a dependable option for people limited by mobility, fitness, or disability, as well as those whose commutes are in the 5-20 mile range. The challenges Fort Collins faces regarding transportation and accessibility are the same that all cities face: traffic congestion, air quality, climate change impacts, increasing housing costs, decreasing housing availability, physical inactivity and obesity, and the economic burdens of car ownership. These challenges will only continue to grow as Fort Collins population increases. Allowing electric-assist bicycles on our paved trails will help address these issues by reducing 2 Langford, B.C., Chen, J., & Cherry, C.R. Risky riding: Naturalistic methods comparing safety behavior from conventional bicycle riders and electric bike riders, Accident Analysis & Prevention, Vol. 82, 2015, pp Peopleforbikes.org, April 11, Plazier, P.A., Weitkamp, G,, & van den Berg, A.E. Cycling was never so easy! An analysis of e-bike commuters' motives, travel behaviour and experiences using GPS-tracking and interviews, Journal of Transport Geography, Vol. 65, 2017, pp

13 barriers to cycling such as distance, age, and ability, while providing a convenient transportation option. Fort Collins should also continue to invest in and improve upon our paved trail system and bike lanes to better serve the high use of these transportation systems by our community. We believe these emission- and noise-free bicycles could play an important role in the City s development of a sustainable transportation system. Their use and sales are rapidly climbing in the U.S., and we support their use for recreation and transportation in ways that don t diminish the experiences of other users. Baby boomers and seniors are living longer and maintaining more active lifestyles than ever before, and people are looking for less fossil-fuel-reliant yet efficient means to move around, creating a demand for this type of vehicle. The BAC recommends the Transportation Board support and advocate for the adoption of a pilot study for the use of Class 1 and 2 electric-assist bicycles on Fort Collins paved trail network. If City Council were to consider a pilot study, we strongly support expanded educational outreach, including providing educational materials to retailers, and increased signage along trails. Clear guidelines for the use of City trails can promote a safe and enjoyable experience for all trail users. We recognize portions of the trail system are not suitable for speeds attainable by both electric-assist and regular bicycles. Staff should determine the appropriate trails to include in the pilot study as well as the duration of the study and a comprehensive evaluation strategy. Staff should also develop and implement a public education program that includes public outreach. Additionally, the BAC recommends city staff reach out to communities with established electricassist bicycle trail policies to gain a better understanding of what is working and what challenges have arisen. Subsequently, staff should be directed to identify metrics that Fort Collins should use to assess the success of any pilot study. Finally, if electric-assist bicycles are permitted on paved trails, clear definitions will be important so that other electric vehicles (e.g. electric scooters, skateboards, or other devices) are not inadvertently permitted. cc: Darin Atteberry Tessa Greegor 3

14 Dear Members of the Transportation Board, On May 17, 2017 I spoke to you as Chair of the Bicycle Advisory Committee (BAC) about creating an informative, fact-based paper on electric-assist bicycles as this might become an issue again for the City. The BAC felt this paper would improve the quality of the discussions that may arise due to changes in state law. I am excited to now present this white paper to you and I hope that you will find it beneficial. Our intent was to pool together current information on regulations, historical context in Fort Collins, and suitability for paved trails. The purpose of this paper is to provide a common platform for discussions regarding electric-assist bicycles. Recent state legislation and the revision of the Transportation Master Plan make this is an opportune time to assess whether the status of these bicycles should be reconsidered on paved trails in Fort Collins. Five Appendices accompany this paper that contain important information and, in some of them, perspectives from city staff. We encourage you to read these as they provide insight into how electric-assist bicycles are viewed by some City departments. As we worked through the existing literature and the solicited responses from City staff, we came to the conclusion that trail capacity for our rapidly growing city is a critical issue that needs to be addressed. We feel this issue should be discussed and may need to be dealt with in the Transportation Master Plan. All evidence indicates that our popular trail system is quickly becoming inadequate for the use it is receiving and as trails become more popular, the stresses on the trail system will only increase. We are concerned that these stresses, coupled with the treatment of trails as recreational amenities rather than transportation corridors, may not allow for adequate funding for maintenance and improvements thus degrading this asset to our community. We expect use of the trail system will only grow as our population expands and the trails are connected to Loveland, Timnath/Windsor, and Greeley. The funding mechanism to build the hard trail system has primarily been GOCO money while maintenance and repair is through BFO offers to the general fund. We are concerned that there is no mechanism to improve the hard trail system to meet the demands of population growth and greater transportation use. We raise these issues in our Questions and Future Directions section as they are outside of the scope of this paper. We believe the time for addressing the needs of our trail system is best done now rather then when issues get worse. The BAC would appreciate hearing from the Transportation Board regarding the utility of this paper as well as next steps in its development. We would be happy to work on additional research on specific issues or questions posed in the paper, especially to help develop a recommendation to City Council regarding the use of electric-assisted bicycles in Fort Collins. Respectfully submitted,

15 Luke Caldwell Chair, Bicycle Advisory Committee

16 Consideration of Electric-assist Bicycles on Fort Collins Paved Trail System Opening Statement Recent legislation at the State level coincides with ongoing revisions to the Fort Collins Transportation Master Plan and provides an opportunity to revisit whether certain electric-assist bicycles (e-bikes) should be allowed the same access on Fort Collins paved trail system as normal bicycles. This information has been compiled by a sub-committee of the Bicycle Advisory Committee (BAC) and supported by a unanimous consent of the BAC on August 28, The purpose of this paper is to provide background information to serve as a basis for discussions regarding electric-assist bicycles on paved trails in Fort Collins. Recent State Legislation On April 4, 2017, Colorado House Bill , Concerning the Regulation of Electric-assist Bicycles, was passed into law; it slightly redefines electric-assist bicycles and further establishes two main points: 1) It provides clear and distinct definitions for three classes of electric-assist bicycles [see definitions below]; and 2) It specifically allows the operation of Class 1 or Class 2 electric-assist bicycles on bike or pedestrian paths unless local authorities restrict such use. Class 3 electric-assist bicycles are barred from such paths unless allowed by local authorities. As before, local municipalities are given broad authority to regulate the use of electric-assist bicycles within their jurisdictions. Additionally, this bill makes it clear that electric-assist bicycles are not legally considered to be motor vehicles by the State; Federal law also does not consider these bicycles as motor vehicles. As of January 1, 2018, the State is requiring that electric-assist bicycles have a label affixed that states the class, top assisted speed, and motor wattage of the bicycle. Definitions of Electric-assist Bicycle Classes by House Bill : All classes of electric-assist bicycles have an electric motor that does not exceed 750 watts (1 horse power). Class 1: An electric-assist bicycle equipped with a motor that provides assistance only when the rider is pedaling and that ceases to provide assistance when the bicycle reaches a speed of 20 miles per hour. The motor must also disengage when a rider is not pedaling. Class 2: An electric-assist bicycle equipped with a motor that provides assistance regardless of whether the rider is pedaling but ceases to provide assistance when the bicycle reaches a speed of 20 miles per hour or when the brakes are applied. Class 3: An electric-assist bicycle equipped with a motor that provides assistance only when the rider is pedaling and that ceases to provide assistance when the bicycle reaches a speed of 28 miles per hour. For this class, the motor must also disengage when a rider is not pedaling. Additionally, Class 3 electric-assist bicycles must have a speedometer and cannot be operated by a person under 16 years of

17 age. Operators or riders under 18 years of age must wear an approved bicycle helmet and secure it with a fastened chinstrap. Current Federal Law (as of August 2017) Electric-assist bicycles have been defined and regulated at the Federal level since 2002 under Public Law This law requires electric-assist bicycles to be designed, built, and safety-tested like traditional bicycles. Their manufacture and first sale (but not their use) are regulated by the Consumer Product Safety Commission, and they must comply with bicycle safety standards (16 C.F.R. Part 1512). Under this Federal law, an electric-assist bicycle is referred to as a lowspeed electric bicycle. This is defined as a two- or three-wheeled vehicle with fully operable pedals and an electric motor of less than 750 watts (1 horsepower), whose maximum speed on a paved level surface, when powered solely by such a motor while ridden by an operator who weighs 170 pounds, is less than 20 mph. Electricassist bicycles that meet this definition are explicitly considered non-motorized vehicles. Current City of Fort Collins Law (as of August 2017) The City of Fort Collins Traffic Code Part 20, Sec defines an electric-assist bicycle as a vehicle having two (2) tandem wheels or two (2) parallel wheels and one (1) forward wheel, fully operable pedals, an electric motor not exceeding seven hundred fifty (750) watts of power and a top motor-powered speed of twenty (20) miles per hour. This definition is the same as the previous State of Colorado definition and may need to be changed if we wish to make it consistent with the State of Colorado s revised description of the three classes of electricassist bicycles. In contrast to State and Federal law, Fort Collins traffic code does not explicitly make a distinction between electric-assist bicycles and motor vehicles. It defines a motor vehicle as any self-propelled vehicle that is designed primarily for travel on the public highways and that is generally and commonly used to transport persons and property over the public highways, The code specifically excludes low-power scooters, wheelchairs or vehicles moved solely by human power from being considered motor vehicles, but it does not mention electric-assist bicycles. The City of Fort Collins currently allows electric-assist bicycles on the trails for people with disabilities (under the Americans with Disability Act). Electric-assist bicycles may also be operated on the trails as long as the electric motor is not used (Traffic Code Part 21, Section ). As far as we know, Larimer County and other regional municipalities, at this time, do not allow these bicycles on trails. However, Larimer County is actively considering allowing class 1 electric-assist bicycles on paved trails (personal communication). History of the Previous Electric-assist Bicycle Discussion In 2010 and 2011, Fort Collins considered allowing the use of electric-assist bicycles on City trails for a trial period. This proposed ordinance was supported by city staff,

18 was taken to Boards and Commissions for their consideration, and public opinion was solicited. The results were mixed. Recommendations from the Boards included: Allowing electric-assist bikes on trails (BAC, Transportation Board) A one-year trial on the Spring Creek and Mason Trails only (Air Quality Advisory Board) A trial period of up to three years in length on all trails (Natural Resources Advisory Board, Parks and Recreation Board) Non-support for electric-assist bikes on trails: o The Land Conservation and Stewardship Board could not support electric-assist bikes on trails without seeing more information on how the public views the issue and a comprehensive analysis of the impacts. The Board noted that people with mobility disabilities are already allowed to use electric-assist bicycles on the trails and that they are also allowed in street bike lanes. o The Senior Advisory Board did not see any compelling reason to allow electric-assist bicycles on trails and expressed concern about safety and conflicts with other trail users. Some Board members suggested that, if electric-assist bicycles were going to be allowed on trails, this should be coupled with a requirement to license them; the establishment and posting of speed limits on trails; and allowing electric-assist trailers on trails as well. A public survey was completed with 202 submitted comments. Opinions were split, with 49% preferring to continue to prohibit electric-assist bicycles from trails, 47% favoring their use there, and 4% stating no preference. Those favoring electric-assist bicycles did not believe there was a significant difference between electric-assist bikes and regular bicycles, considered them to be a useful option for commuters and the elderly, and thought that they would be safe if operated properly. Concerns included safety, speed, acceleration, conflicts with other trails users, impacts to natural areas and wildlife, noise issues, lack of capacity for enforcement, how the situation would evolve as electric-assist bicycle technology improved, a belief that trails are primarily for recreation, and a fear that allowing electric-assist bicycles on trails would open the door to the use of other motorized forms of transport (i.e., mopeds, electric skateboards, etc.). On November 15, 2011, the Fort Collins City Council conducted a 1 st reading of an ordinance that would establish a one-year trial period for electric-assist bicycles on paved trails, which was supported by City staff. However, during this first reading, City Council voted to amend Ordinance No. 167, 2011, and eliminated the provisions pertaining to implementation of a one-year trial period to allow electric-assist bicycles on City trails (Minutes, Fort Collins City Council Meeting, November 15, 2011).

19 Fort Collins Trail Infrastructure, Rules, and Enforcement Natural Areas, Parks, and Park Planning and Development are the three departments that design, oversee, and manage the trail systems in Fort Collins. Neither the Parks Department nor Natural Areas staff currently supports the use of electric-assist bicycles on unpaved or paved trails due to safety and aesthetic concerns. See Appendix A for their responses to our questions regarding current paved trail infrastructure and the suitability of electric-assist bicycles on paved trails. The paved trail system does not have a speed limit and no municipal code regulation references a speed limit on trails. However, under Sec (d)(18) for Natural Areas and Sec (a)(14) for Parks, it is unlawful to ride a bicycle, horse, skateboard, or other means of conveyance in a reckless or unsafe manner. Both staff and the public (through the public survey) have raised concerns about the difficulty of enforcing such rules. Even if City Council approved a speed limit for trails, rangers would be unable to enforce the regulation, as speed limits fall under Traffic Code, which requires a police officer to write up violations; rangers do not have Traffic Code enforcement capacity, nor do they have the authority to conduct a traffic stop on the paved trail system. However, they can issue citations for code violations. There is concern that if electric-assist riders were acting in unsafe or reckless ways, the rangers, who do not use electric-assist bicycles, may be unable to catch them. Any reckless behavior by riders of electric-assist bicycles would be of particular concern for youth using the paved trail system (see Appendix B written by the Safe Routes to School program). Potential Environmental Impacts and Demand for Electric-assist Bicycles There is considerable uncertainty regarding whether electric-assist bicycles would primarily be used for commuting, recreation, or both activities. Therefore, Fort Collins does not have the data needed to assess the potential environmental impacts (source: Lindsay Ex, Climate Program Manager, City of Fort Collins). Seniors are one potential user group for whom electric-assist bikes could increase accessibility of the paved trail system. The City estimates the percentage of the population that is 65+ may increase from about 8% in 2010 to about 19% by 2030, and then drop between 2030 and 2060 to about 11% (City Plan 2011). Overall, sales of electric-assist bicycles are expected to grow over the foreseeable future. Sales in North America were expected to reach about 152,000 in 2016, according to research firm Navigant Research. This is a fraction of the 33 million sold in Asia or the 1.6 million expected in Western Europe, as both continents embraced the technology much earlier then the U.S. and have seen steep increases in sales. Other Communities City staff from FC Moves has reached out to several communities that allow electricassist bicycles on trails to help provide a realistic vision of whether the concerns of these bikes on trails are borne out (Appendix C). Electric-assist bikes are still in low

20 use in these municipalities. For Boulder, CO these bicycles have not been involved with any reported or documented crashes since they were allowed on trails beginning in In Santa Cruz, CA and Madison, WI officials commented that perceptions of electric-assist bicycle riders being reckless, or riding at unsafe speeds are higher then what is observed although enforcement on multiuse trails created challenges. While few empirical studies have been conducted on electric-assist bikes a summary report of these studies from Portland State University highlighted that electric-assist bicycles were ridden ~2 mph faster on roads than non-assist bicycles but ~1 mph slower on trails (NITC Technical Report, Appendix D). Additionally, a 2017 study conducted by Jefferson County, CO Open Space found that an electric-assist bike demonstration significantly increased acceptance for electric-assist bicycles on trails, while also reducing perceived uncertainty of their suitability for use on trails (Appendix E). Questions and Future Directions This paper has been created to provide a fact-driven overview of electric-assist bicycles, their current legal definitions, and potential suitability for paved trails. The following questions arose from this exercise and deserve further discussion. These issues may need to be addressed in the Transportation Master Plan. 1. Trail system: mission and capacity: Parks and Natural Areas Departments note that the City s paved trails were designed as a recreational amenity and not a transportation corridor (Appendix A). However, use of trails for commuting is in line with the City s environmental and health goals. Treatment of trails as part of the recreational, rather than transportation, infrastructure may limit the ability to appropriately fund maintenance and improvements of the paved trail system. Fort Collins 35-mile paved trail system is a popular community asset. Its capacity should be examined given expected increases in use due to an expanded trail system, upcoming connections to other municipalities, and population increases. Is there a need for speed limits on the bike paths, and any concomitant changes to enforcement capabilities? 2. Electric-assist bicycles: legal definitions, regulations, and enforcement The designation of electric-assisted bicycles as a motorized vehicle in Fort Collins s code is in contrast to state and federal law. It seems prudent to discuss whether the current designation is appropriate and whether consistency with state and federal designations is beneficial. Any changes to Fort Collins municipal code should consider the following: Most definitions of electric-assist bicycles specify a top assisted speed of 20 mph, which would exclude Class III Colorado electric-assist bicycles. If electric-assist bicycles were going to be allowed on Fort Collins trails, what

21 classes should be allowed? If not, would the City be able to enforce any distinctions? Could some other requirement (e.g., licensing or a sticker of some kind) help make Class III electric-assist bicycles easily identifiable? Given efforts to link bicycle and pedestrian trails in Colorado, how important is it that electric-assist bicycle regulations be consistent across jurisdictions (e.g., city, county, State)? Are there other types of vehicles that could be inadvertently made legal on trails under the State s definition of electric-assist bicycles? If so, City code could be written to exclude these types of vehicles. Conversion kits that transform regular bicycles into electric-assist bikes are commercially available. These converted bikes may possibly make up a sizeable proportion of electric-assist bicycles as they are less expensive and their status should be made explicit. In addition, if typical electric-assist bicycles are allowed on trails, the status of motor-battery hubs, encapsulated recumbent bikes and electric-assist trailers should be clearly stated. Are there other electric recreational and transportation devices whose use on paved trails should be discussed (e.g., skateboards, hover boards, roller skates, roller blades)? Bicycles are currently allowed on paved trails, unpaved trails, and sidewalks. Legal use of electric-assist bicycles should designate clear limits to their use. 1. Memo from Parks, Park Planning & Development and Natural Areas re: E-bike use on Trails, June Issues to Consider re: E-bikes on Trails, City Safe Routes to School Coordinator 3. Summary of E-bike Research - City staff 4. Final Report - Evaluation of an Electric Bike Pilot Project at Three employment Campuses in Portland (NITC, February 2017) 5. Summary of Jefferson County E-bike Study Findings to Date, July 2017

22 ATTACHMENT 3 TRANSPORTATION BOARD TYPE OF MEETING REGULAR The next offer discussed was related to electric buses. This offer would involve a pilot project to replace existing buses in the fleet. Brooks discussed the maintenance advantages of electric buses. The next offer discussed involved public-private partnership opportunities for transit. The offer, if funded, would be contingent on public-private agreements with potential partners such as CSU, the brewery district, Woodward, and student housing projects. Hart asked if any of the transit budget offers return frequently. Klingner replied North College Avenue and West Elizabeth are frequently mentioned, as well as electric buses and a regional transit partnership with Greeley. The next offers discussed were related to parking. Staff discussed an offer related to address the over-parked lot at the old K-Mart site by constructing a parking garage at the site. There are partnership opportunities in the area and the offer is meant to at least start a conversation. Arnold asked if CSU has been consulted. Klingner replied meetings are held with CSU weekly regarding transit and parking. He stated CSU is aware of the issues and conversations around solutions are occurring. d. E-bikes Pilot Program Proposal Tessa Greegor Tessa Greegor, FC Bikes, provided Boardmembers with a handout on the draft structure of the proposed E-bike pilot program, trail maps, and Pace promo codes. She discussed the impetus for the program and detailed what has led the Board and staff to this point in the process. Brown asked if the E-bike manufacturing label requirements are universal across the country. Greegor replied she believes the requirements are unique to Colorado. Brown asked if there are any enforcement teeth for the regulatory agency in terms of labeling. Greegor replied she was unsure of that from a federal perspective. Sizemore stated any states that have adopted the model legislation would have similar labeling requirements; however, that is not a federal requirement. Greegor discussed the process for developing the proposed pilot program and stated the scope of the project is for all paved trails in Fort Collins for Class 1 and 2 E-bikes, a one-year pilot, and an educational component. Greegor discussed the proposed reporting aspect of the project and stated key partners are various City departments, local bicycle organizations and retailers, and regional partners. The cost of the project is estimated at $7-10,000, which does not include staff time. Bondi suggested moving forward with a positive recommendation for Council. Greegor outlined current ordinances regarding E-bikes. Hart reiterated his opinion this is a behavior issue; therefore, he does not support time 08/15/2018 MINUTES Page 5

23 TRANSPORTATION BOARD TYPE OF MEETING REGULAR spent trying to regulate a specific technology as opposed to overall trail education and etiquette. Rachline stated this program would allow E-bikes to participate in the same way to determine if they do not need to be differentiated. Hart agreed and stated he now understands why this would be beneficial. Sizemore noted the legal aspects of necessary code language would be crafted following moving forward with this step. Bondi made a motion, seconded by Arnold, that the Transportation Board move forward with a recommendation to begin the pilot study. Brown stated she understood not all Boards and Commissions who reviewed the pilot proposal held a vote; therefore, Greegor s presentation is inaccurate when stating all Boards and Commissions supported it. Additionally, she stated some Boards and Commissions members have very serious concerns with the pilot and allowing E-bikes on trails. Greegor acknowledged the clarification that boards did not generally hold votes. Chair Shenk requested an amendment to the motion to include the Bicycle Advisory Committee s white paper in conjunction with the recommendation. Hart and Arnold accepted the amendment. The motion was adopted with Shenk, Rachline, Hart, York, Arnold, Ayers, and Bondi in support and Brown dissenting. Brown stated she would like additional details on enforcement options. Hart, a volunteer ranger, briefly discussed the types of enforcement techniques he uses. 8. BOARD MEMBER REPORTS Brown reported the Disability Advisory Commission took up the issue of downtown parking and the number of available handicapped spaces. She stated she is taking a mini-class from the NADTC, a transportation group that advocates nationally for accessibility, transit, and transportation. Hart reported on the recent Parking Advisory Board meeting during which triggers for onstreet paid parking were discussed. Ayers stated he has not noticed serious congestion around the Mulberry pilot project. York noted that project is also a pilot. Bondi reported he may be moving to Castle Rock permanently and this may be his last Transportation Board meeting. York reported on the August 19 th Planning and Zoning Board hearing during which the Board adopted revisions to Articles III and IV of the Land Use Code. Part of the general provisions discuss transportation impact studies as they relate to the adequate public facilities standards for transportation levels of service. The changes will make the 08/15/2018 MINUTES Page 6

24 ATTACHMENT 4 City of Fort Collins Senior Advisory Board Minutes Wednesday November 14, :30 a.m. Fort Collins Senior Center 1200 Raintree Drive Fort Collins, Colorado Mission: The Senior Advisory Board shall serve in an advisory capacity y to the Fort Collins City Council on programs and policies that help aging citizens live full and interesting lives and continue to contribute, participate, and share in the life of the community. NOTE: Joint lunch with Fort Collins Senior Center Council; followed by a shortened meeting Board Members Present: Myles Crane, Sarah Schilz, Janet Sanders, Jason Brabson, Suzanne King, Dhara Rose, Greg Wells Staff Present: Katie Stieber, Lisa Hays Speaker(s) and Guests: Tessa Greegor Absent: I. Call to Order II. Guest introductions III. Administrative Items a. Attendance: b. Approval of Minutes c. Correspondence d. Update on SAB Activities of the last month e. Public Participation IV. Speakers a. Tessa Greegor; FC Bikes i. Discussion around E-Bikes the bike committee is looking for support to present to the City Council the proposal of a pilot e-bike program allowing e-bikes on paved trails in Fort Collins. ii. Greg motioned, and Myles seconded to support the pilot program. Unanimous vote in favor of supporting the bike committee in taking the proposal to City Council V. Ongoing projects VI. Updates a. Senior Transportation Coalition - Jason Brabson - LCOA is having a conversation about offering one click, one call service for transportation needs. b. City of Fort Collins Affordable Housing, 1st Thursday, 4 pm; Greg Wells Greg and Wendy continue work as ambassadors, they hope to wrap up phase 3 by spring 2019 c. City of Fort Collins Transportation, 3rd Wednesday, 6 pm, 215 N. Mason community room need liaison-- d. PAFC steering committee: Focused on member appreciation and encouragement to vote. Please that the mental health proposition was approved by the voters e. PAFC Housing

25 ATTACHMENT 5 Environmental Services 222 Laporte Avenue Fort Collins, CO fcgov.com MEMORANDUM NATURAL RESOURCES ADVISORY BOARD DATE: January 17, 2019 TO: Mayor and City Council Members FROM: Nancy DuTeau, Chair, Natural Resources Advisory Board SUBJECT: Pilot Program for E-bikes on Trails Dear Mayor and Council Members, The Natural Resources Advisory Board (hereafter NRAB) is strongly supportive of the pilot project to allow the use of both Class 1 and Class 2 electric-assist bicycles on the Fort Collins paved trail system. We believe that this will have myriad benefits to a broad range of people in our community. Allowing electric-assist bicycles on trails for all users (current law allows only people with disabilities to use these bikes on our paved trails) will increase accessibility for transportation and recreation activities for a wider range of ages and physical ability. Our paved trail system is a vital component of our multi-modal transportation infrastructure that provides safe, efficient means to travel around the city for recreational, commuting, or other purposes. Allowing electric-assist bicycles on our paved trails is a piece of the puzzle to help meet City goals such as the Climate Action Plan by reducing motor vehicle use, continuing to encourage a healthy community through more physical outdoor activity, and increasing accessibility to our trail amenities for seniors and less physically-capable citizens. The NRAB is embracing electric-assist bicycles and hopes they will further incentivize bicycle commuting, thereby reducing emissions and traffic congestion. This objective will become more important as the city grows and more people that work here are forced into neighboring communities due to increases in cost of living. Allowing electric-assist bicycles on our paved trails will help reduce barriers to cycling such as distance, age, ability, and the increase in housing prices that pushes people further away from their jobs, city amenities, services, and the larger community. Electric-assist bikes are emissions-free, low impact, and silent. We believe allowing them on our paved trails will encourage more people to cycle and enjoy our city s amenities while reducing the environmental impacts associated with travel. Electric-assist bicycles could play an important role in the City s development of sustainable transport systems. As our city and the surrounding region grow in density there are increased demands on our public amenities such as the paved trail network. We are starting to experience capacity-related issues especially on our older and narrower paved trails. The narrower trails create safety concerns given the diversity of users and the high popularity. We see value in updating our existing trail system and would like to see a sustained funding mechanism in place for future improvements to this public amenity. The safety concerns regarding the use of electric-assist bicycles on our paved trails are valid and it is thus essential that robust educational outreach be

26 designed and implemented that stresses common courtesy to other trail users during this pilot program. Given our region s growth, Fort Collins is increasingly connecting our paved trails with other municipalities trails making it more important to manage the trails consistently across jurisdictions to minimize user confusion while maximizing consistent behavior and expectations. Both Loveland and Larimer County allow Class 1 and Class 2 electric-assist bicycles on their paved trails, as do many other municipalities across Colorado, and the NRAB agrees Fort Collins should move forward with a trial period to assess suitability for our community. Respectfully submitted, Nancy DuTeau, Chair cc: Darin Atteberry, Katy McLaren 2

27 NATURAL RESOURCES ADVISORY BOARD REGULAR MEETING wondered what would happen should he call (on a non-emergency number) an enforcement agency to address the issue. Cassie replied that, in a non-emergency, response would beoutreach and educational efforts. She added that 3 ft. by 5 ft. (3 x 5 ) is the current safety limit. Elizabeth Huddetz is leaning toward Option 2. She felt that this was reasonable given the practical implications for people with respiratory health issues. She is especially concerned about the elderly and youth populations. Cassie noted that the AQAB (Air Quality Advisory Board) recommends some regulations, as they do not think the current structure address health issues adequately. Luke Caldwell felt that enforcement and education might be difficult. He inquired to the possible communicative schemes to disseminate information. There was some discussion that people building fires do not review regulations since the activity is typically impromptu. Jay Adams added that education and marketing could include a message for example that says, before you build a fire, call this telephone number. The message would give information on fire restrictions. Bob Mann favors Option 2. He feels that most neighbors will not complain, but also notes that many people do not interact with their neighbors. Danielle Buttke favors Option 3. She noted that 25% of the community have respiratory issues. She continued by listing the many ill health effects from smoke on every population group from neonatal to the elderly. She discussed existing technologies that reduce smoke and described self-contained units. Barry Noon is leaning toward Option 3. He discussed current regulations in this area. He made analogy to emissions restraints on vehicles. He followed his comments with proclamations about the obligation to be more sensitive to each other s needs as the commonwealth grows and population density increases. Bob Mann moved that the members of the NRAB could support the following statement: The NRAB indicated they could support pursuing a recommendation along the lines of Option #2 (with some support for #3) if it came with adequate education and outreach, and resources to effectively enforce. Option #1 was not supported. They also suggested that device standards rather than prohibitions be considered to limit smoke emissions (such as a smokeless wood burning fire pit). Danielle Buttke seconded. The vote was unanimous in favor. (8-0). c. E Bikes on Trails Tessa Greegor, Fort Collins Bikes Manager presented the NRAB with the parameters of the proposed pilot program for the Class 1 and Class 2 E-bike program on Fort Collins multi-use trails. She is requesting a formal position from the NRAB members in support of a one-year pilot program to allow Class 1 and Class 2 E-bikes on Fort Collins paved trails. She provided the NRAB members with some documentation 1. Memorandum of Recommendation from the Bicycle Advisory Committee and, 2. An Overview of the Proposed Framework for the Pilot Program. The State of Colorado developed state level regulations in 2017 that included the three-level classification system. The internal committee developed the proposed pilot program framework, which was based on initial feedback from Boards and Commissions as well as other pilot program examples. The 10/17/2018 MINUTES Page 3

28 NATURAL RESOURCES ADVISORY BOARD REGULAR MEETING Bicycle Advisory committee was instrumental to the effort. Components include education, evaluation, data analysis and reporting. The costs at $7-10K include materials, surveys and signs. The pilot program will give more opportunity to gather additional information and in depth study of the issue. Including all paved trails in the city will help the team evaluate data in depth citywide. It will also allow for development of education measures on items such as etiquette and safety. She described three classes of E-bikes. Class 1 assists the rider up to 20 mph while pedaling. Class 2 assists the rider up to 20 mph without pedaling and includes a a throttle. Class 3 assists the rider up to 28 mph with pedaling. The pilot program framework is suggested to include only Class1 and Class 2 e-bikes. The use of E-bikes is higher amongpeople over 50 years of age. Increasingly, the younger population tends to use them as an alternative mode of transportation. Findings show that traditional bicycle riders and E-bike users exhibit comparable safety behaviors. A potential benefit is to provide consistency across jurisdictions. Jay Adams asked about an approximate number of bikes for the pilot. Tessa replied that the pilot would open up to anyone to use e-bikes on trails if they chose to. Barry Noon conducted an informal survey amongst his seven graduate students who were all regular bicycle users. He reported that none were opposed to E-bikes. All of the students were concerned about the speed of the bikes and the safety for riders, especially at the tunnel under Shields Street. Apparently, there have been close calls in that area and safety is an issue. He mentioned some concern about the expansion of these programs to include, for example, dirt trails. A question was asked about providing e-bikes to law enforcement / rangers. Tessa Gregor mentioned that this has been discussed informally and believes e-bikes have been used in other locations for this purpose. Elizabeth Huddetz is supportive of the pilot program, especially since E-bikes seem to be in use already. Danielle Buttke feels that E-bikes are safe and most likely in current use. She approves the pilot program. Luke Caldwell said the general comments from the Boards and Commissions converge on speed and safety concerns. Ling Wang asked about a tie-in with the program to the Bicycle Friendly Driver Program. Tessa said that information regarding new laws and infrastructure is included in all educational programs. Luke Caldwell volunteered to write the NRAB recommendation in favor. Elizabeth Hudetz moved to approve the Pilot E-Bike Program. Barry Noon seconded. The vote passed unanimously. (8-0). d. Meadow Springs Ranch Easement Daylan Figgs, Sr Environmental Planner and Jason Graham, Water Reclamation and Bio-solids Manager were available for the discussion regarding the Meadow Springs Ranch Easement. The easement is part of the Roundhouse Renewable Energy Project. While they did not make a formal presentation, they were available to answer questions and add depth to the NRAB 10/17/2018 MINUTES Page 4

29 ATTACHMENT 6 Natural Areas Department 1745 Hoffman Mill Road PO Box 580 Fort Collins, CO fax fcgov.com/naturalareas naturalareas@fcgov.com MEMORANDUM From Land Conservation & Stewardship Board To City Council Through Tessa Greegor, Bike Program Manager Subject E-bikes and Natural Areas Date November 14, 2018 The Land Conservation and Stewardship Board with one significant reservation supports plans developed by the Bike Program and the Bicycle Advisory Committee to conduct a pilot program to evaluate electric-assist bicycle (e-bike) use on Fort Collins trails. Our reservation is that Class 2 e-bikes, which provide power without regard to rider pedaling, are motor vehicles. There is a long standing and uncontroversial exclusion of motor vehicles from Natural Areas. In our opinion these machines bring a level of mechanization to Natural Areas that interferes with preservation of their natural conditions. Increased mechanization cannot improve ecological conditions or user experience, and quite likely harms them. We encourage the pilot program, later rule making, and evolving bike infrastructure to embrace a model of nonuniform e-bike use. Specifically, the City s bike system should evolve in ways that allow for e-bikes to be excluded from areas where there are conflicts among trail users or with trail surroundings, as is the case in Natural Areas. Early recognition of limitations on e-bike use will help in planning and implementing alternate routes, signage, and other aspects of bike route design. We earlier wrote to the Bicycle Advisory Committee and the Transportation Board with more expansive explanation for our reservations. Those earlier communications are attached.

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33 ATTACHMENT 7 Parks & Recreation Board Parks Maintenance Shop 315 S. Bryan Abe REGULAR MEETING December 5, 2018 Board: I think we should start with a letter, and I think it should be specific and point out the fact that KFCG s 0.85% is nice, but it is not sustaining status-quo. We need to take that point directly to Council. Board: As much as letters do the trick, we need to talk to councilmembers one on one. The fact is, we ve been talking in circles about this for years. The 2008 park policy plan we have say s there is a need to find more money. Board: Attend the work sessions. These will not offer public comment, so send an the day of the meeting to express your support of at least maintaining the tax. Grade-Separated Crossings Caleb Fever City of Fort Collins Engineering Angie BHA Natalie Transportation Board This grade-separated crossing will complete the last gap of the Power Trail. It is a 125 crossing under Harmony Road. Utility location is a big factor in the design of the crossing. Board: What is your timeline for input? Staff: Late January/early February we would like to have input from board members. Board: When you are comparing underpass design options and say one is deeper, and the underpass is surrounded by underground water, does that mean this will be more likely to flood? Staff: All underpass options would need pumps to some degree E-Bikes Tessa Greegor FC Moves Board: Are you able to identify a couple of trails that are used the most for people who commute to work on an e-bike? Staff: We have not done that study yet. Spring Canyon and Poudre Trail are the most used trails, and that includes people who commute. Board: I m concerned about speed. Are you going to do a trial on a few trails to get a reaction from the community? Staff: The board can offer a recommendation on what you would like to see. I will be tanking that to Council and have them decide how they would like to use the information. We would like to do a comprehensive study so we have more data Board: Where did you conduct your focus study? Staff: We have 14 locations on the trails, with twice as many on street trails, and at intersections 12/05/2018 MINUTES Page 3

34 Parks & Recreation Board Parks Maintenance Shop 315 S. Bryan Abe REGULAR MEETING December 5, 2018 Bruce made motion to support the e-bikes pilot program: Ragan seconds Motion passed BOARD MEMBER REPORTS Work Plan update Mike Calhoon and I have agreed to take out a page worth of Visions and Goals from the Work Plan Written report due January Edits due to Rob by end of January 9. OTHER BUSINESS Staff Updates Parks Staff Update Santa has arrived at Library Park Skate house and rink are set up in Old Town Holiday shrubs have been installed downtown The trees being planted in the foothills garden at the Garden on Spring Creek, were donated by Tim Buchanan Park Planning & Development Staff Updates Brief descriptions of current Park Planning & Development projects attached The Fossil Creek Trail, from Shields to College, will open Monday, December 10. Ribbon will be cut on the west side of the tunnel Park Planning & Development is working with 1 st United Methodist Church to make improvements to Eastside Park. This effort will be part of their 150 th church celebration in late 2019 An online application will soon be available for citizens to participate in City Park Refresh design workshop in March A historic infiltration system from the 1930 s, was uncovered during the Poudre River Whitewater Park construction. Recreation Updates This last mass registration was a record registration for winter. Last year, we reached $119k, this year we reached $148k. 63% of registrations were completed online, and there were 429 reduced rate program signups. The 12-week Sports and Economic feasibility study will begin January 8 th. This study will analyze if 12/05/2018 MINUTES Page 4

35 ATTACHMENT 8 E-Bike Survey June 3, 2018 Open Streets During the June 3, 2018 Open Streets event, e-bike demos were provided by bike shops for participants. Participants were asked to complete a survey regardless of if they tested an e-bike during the event. The questions and responses are summarized below The City of Fort Collins is considering the possibility of allowing Class 1 and Class 2 e-bikes* on paved trails in Fort Collins through a pilot program. We are interested to hear your perceptions and feedback on the use of e-bikes in Fort Collins! 1. Have you ridden an e-bike? a. Yes (48) b. No (46) 2. If yes (to #1), did your perceptions of e-bikes change after riding an e-bike? a. Yes it changed, my perception is more positive (34) b. Yes it changed, my perception is more negative (2) c. My perceptions did not change (10) d. I m not sure (2) # of Responses Yes, positive Yes, Negative No Change I'm not sure

36 3. Do you support allowing Class 1 and Class 2 e-bikes on Fort Collins paved trails through a pilot program? a. Yes (64) b. No (16) c. I m not sure (13) Yes No I'm not sure 4. Please explain your response: (summary of comments) Concerned about the fast, pedal, e-bike on the same trails Motorized travel is not what trails are for. Added congestion, speed, etc., will decrease safety Only assisted e-bikes with limited speed range It will allow older folk to continue to ride I think trails should be accessible As long as they aren't fast - no prob Because we are old I have many friends with chronic illnesses that this kind of bike makes it possible to still ride. I want them to be able to use the routes. I think pedaling is easier and better! E-bikes are super fun! Anything to promote clean commuting As long as speed is limited, I would have no problem with e-bikes on trail They need to honor the 15mph speed limit Bikes are good. Electric only bikes could allow people not able to fully power their own bike to get out Too fast - They're already out there and too fast I think they are great transportation E-bikes can be great for elderly populations I patrol for the city as a VRA - mainly on the bike path (for 2 years). It is totally incomparable for e- bike/motor-vehicle on the path. In the last few years, the paths are very busy (esp. Timberline to Shields) & unsafe pretty much w/o motors. Too many peds, many just learning to bike who are 'all over the path' & few parents keep eyes out for them. Purely to be safe, no electric motor. Good for people who cannot ride a bike full time Most e-bikes go slower than some bikes Afraid of excessive speed for gradually increasing abuse (motor bikes etc..) This could be an important source of transportation for some segments of our population If they going through trouble of engine, it should be on the road. Unsafe speeds in close areas w/ dogs and bikes of slower rates I think it may help those who are hesitant to ride on trails to be more encouraged to do so. They may have assistance up hills. Safety issue and bike trail congested already. Prefer non-motorized only on trail; others on streets Along as behavior for everyone on the trail is respectful and controlled. (speed limit or less crowded) Could interfere with peddlers going slower

37 I don't know enough about them Where I live, too much traffic around Spring Street Park & D.Q. and how much exercise do you get on an e-bike? Not much Don't know what they are doing Will make trail dangerous Unsafe for kids and seniors Make biking more accessible! I don't think they should be allowed on the trails If it gets people biking, I'm for it. Trails too crowded Potential to be dangerous to other trail users due to speed They might be more too fast and disrupt the flow, but definitely could be nice on the uphill E-bikes help more people use bikes & the trails are the safest place to bike The limited speed makes this fine It seems like it s a user thing rather than a bike thing. Some bikers are unsafe on non-ebikes People control this speed regardless of e-bike vs. regular. Its all personal responsibility. Seems like a useful way to get around town if you don't want to fully ride Class 1 pedal assisted bikes felt super safe and would increase the biking in Fort Collins The rider is still in control, they are safe I did not go any fast on the e-bike, it was just easier. I think this can make the trails more accessible It s amazing! You still pedal, just faster They are great! Class 1 e-bike should be absolutely allowed on paved trails because you control speed through the pedals and not with a throttle E-bikes are a safe option for people who may not be comfortable rin=din otherwise Had a nice experience. Easy to control. Could be quite useful on hilly roads. Great transportation option for elderly, disability, and people traditionally more home bound Safety of Children Speed not the issue, bike coutesy the issue It opens up cycling to more people who could otherwise rise It allows people who can no longer ride a regular bike due to injuries. Really changed my life when I hurt my knee. It enables those with disabilities to ride This will help more people get out on their bikes! I think it would be excellent for those who are less able to ride ot be able to ride with the assistance of electronic measures. The more on the trails, the merrier! Pilot allows testing idea Seniors and other less capable should have equal access to off street trails and less risk of getting run over on the streets Ebikes allow me to ride again even with my knee injury Not sure Maybe mandate classes to those who ride on trails E-bikes will revolutionize transportation and take cars off the road, they are still legally considered bicycles Honestly, it is hard to say without experiencing it. I might recommend a trial period with heavy monitoring to see any unforeseen complications Speed not ebikes is problem. Nearby cities allow ebikes Why not = less cars Can people behave? I'm not sure, but I'm willing to have us run an experiment

38 It's a good idea to check this out. Why not I have a ebike so I can ride more comfortably with a back problem I have. It enables me to ride further Help less abled riders to get some exercise and reduce car travel Road 1 tri bike rides easily. Ride 20 mph too I'm okay with class 1. I worry about acceptable speeds on the trails. People are on them and having too fast of a bike could be dangerous In the end those are bicycles and should be treated as such. Putting ebikes in with cars is very dangerous for bikes Seems safe and controllable easily Not sure, might be too fast for trails Class 1 seems safe enough. Any bike is dangerous on a trail with a reckless rider Great for people with mobility/physical issues - worried about impact on traditional riders Great for folks who need it, but I could see a problem with speeding I believe regulation should be focused on bad/unsafe behavior rather than the type of bike being ridden It was fun and I think it would encourage others to ride instead of drive. Les air pollution, less congestion, less accidents, more smiles! Please share additional comments or concerns regarding the potential use of e-bikes on paved trails: They just need to comply with the rules - audible signal to pass, slow zones, speed limits (when imposed). Otherwise, fewer cars! Once you got used to it, it s the same as a regular bike Good for community! Wider Trails w/ more passing lanes for a wider variety of speeds & skills. If speed limits were enforced, I could consider it All surrounding cities allow e-bikes (hand-writing is hard to read) Very much in favor Great Idea! Please, yes! Especially for pedal assists It would be great to have a rental service Would be an amelioration of the status quo! Combine with rules and enforcement (for speed) Some regular bikers are going way faster than 20 mph I see ebikes in more cities and love how they empower more people to commute or mountain bike They seem okay Also, not thrilled by scooters as they're blasted past w/out warning (hand-writing hard to read E-bikes have been proven to be just as safe and cause no more damage to trails as regular bikes My one concern would be noise - as long as they are quiet it sounds fine with me Go for it. We would appreciate it! More bike less cars There's no licensing or much awareness of the variety of speeds and abilities of these bikes and the trails aren t designed for speed

39 Let s get folks outside mph should be regulated Great! Would love to allow on trails. My wife could ride with me There is more potential for ebikers to be seriously injured on roads than for injuries to occur on paths Other than speeds, nothing The more bikes the better for the city. We should encourage ebikes, not discourage Way fun too! Pedestrian conflicts Such a fun ride! Need a system of fair access for everyone Must pay special permit? Fines for those going too fast. I think e-bikes can open extend opportunities for more bike riding I don't think these electric assist bikes would increase safety concerns on trails people on racing bikes already go faster than 20mph and it all comes down to responsibility anyway. *Class 1 and Class 2 e-bikes limit the electric assist functionality to a maximum speed of 20 mph. Class 1 requires the user to be pedaling for the assist, and Class 2 provides a throttle-assist.

40 Colorado E-bike Regulations ATTACHMENT 9 Federal Regulated as bikes by the federal government for product safety and first sale. Includes pedal or throttle-assist bikes with a max speed of 20 mph. On federal lands, e-bikes are considered motorized vehicles and have access to motorized trails. State States regulate the use of e-bikes on streets and paths. Approximately 30 states define e-bikes as bikes, and approximately 7 states have a three-class categorization of e-bikes similar to Colorado. Colorado Class 1 and Class 2 e-bikes allowed (paved / unpaved) Colorado State Parks Class 1 and Class 2 e-bikes allowed (paved / unpaved) (include Lory State) County Larimer County Class 1 and Class 2 allowed (paved) Boulder County Allowing Class 1 and Class 2 on regional trails and most open space areas on the plains. Not allowing on foothill/mountain trails Jefferson County Class 1 and Class 2 allowed on paved trails Class 1 allowed on natural surface trails Summit County Will decide in April El Paso County Class 1 and Class 2 allowed Pitkin County Class 1 allowed on paved and crusher fines trails Douglas County Allowed Pilot Program (started Jan. 1, 2019) Pilot Program completed in 2018 City Boulder Class 1 and Class 2 allowed on paved trails Pilot Program completed in 2014 Denver Not currently allowed on paved trails, considering updating code to allow Loveland Class 1 and Class 2 allowed (paved /unpaved) Vail Class 1 and Class 2 allowed (paved) Pilot Program, Ordinance_No._5_Series_of_2018.pdf Colorado Springs Class 1 allowed on Urban Trails Not allowed on Soft Surface Broomfield Class 1 and Class 2 allowed (paved and unpaved trails) Steamboat Springs Class 1 allowed (paved) Pilot Program Highlands Ranch Class 1 and Class 2 allowed Pilot Program, 2018 Grand Junction Class 1 and Class 2 allowed bikes-on-city-trails-approved/article_941b31fc-179e-11e8- b5ba-10604b9f1ff4.html Durango Class 2 and Class 2 allowed Pilot Program Received no complaints during pilot period Superior E-Bikes (all) allowed

41 Colorado E-bike Regulations Erie Louisville Glenwood Springs RFTA Rio Grande Trail ( _code?nodeid=ch8vetr_a RTIIIELVE ) Class 1 and 2 allowed Class 1 and 2 permitted on all official trails Class 1 and 2 allowed Class 1 and Class 2 allowed ** this information was compiled using a variety of sources where information was available and does not capture every Colorado jurisdiction.

42 ATTACHMENT 10 Pilot Program Allowing E-Bikes on Paved Trails Proposal to allow Class I and II (but not Class III) E-Bikes on paved City trails for a 1-year pilot period. These are electric bikes that allow speeds up to 20mph with assist, excludes gas assist bikes. Data from this pilot would be used to assess future policy decisions. Pilot will collect data on safety, conflicts, perceptions about allowing E-Bikes, observations with behavior, usage (trail counts), and E-Bike purchases. Positive E-Bikes may potentially replace some single occupancy vehicle travel; allowing a pilot would gather data to assess scale of this impact Pilot will include education and outreach on trail stewardship Negative None Identified Positive Expands opportunity for local bike shops and bike industry around E-Bikes Could expand our brand as a bike friendly and inclusive community Negative None Identified Positive Allows more users to access bike trails, including some underrepresented populations, such as seniors. Bike trails represent access to physical activity, a City service, and may contribute to sense of belonging Negative None Identified Tradeoffs Social interactions could be increased by additional access to trails but is offset by concern for increase in trail conflict. Increased use of paved trails may be offset by some decrease in use of paved roads; this would need to be monitored to determine overall impact to City maintenance needs. Mitigations Pilot duration of 12 months allows greater insight into impacts before moving forward with a long-term proposal Usage is limited to paved trails Key Alignment: Transportation-6.2: Manage traffic congestion and improve high-priority intersections. Culture and Recreation-2.2: Plan, design, implement and maintain the City s parks and trails systems.

43 Pilot Program Allowing E-Bikes on Paved Trails Impacts within Environmental and Economic areas are neutral to positive and largely indirect. This is due to the limited duration of the pilot. If E-Bikes are approved long-term after the pilot period, there may be additional direct impacts. Also, if e-bikes utilized unpaved trails / the city s single track system, there may be impacts related to trail condition. Social impacts are more direct due to increasing opportunity to access physical activity and City services (trail system). o This opportunity may especially benefit some underrepresented populations, including the aging population. o It also introduces a new option/alternative for transportation, but since adoption is voluntary, it does not directly impact cost of transportation for most of the community. o Impact to social interactions may directly occur, but the net impact between increased connection and potential for increased trail conflict is currently uncertain. Long-term, if e- bike use increases significantly, it could impact user experience/enjoyment of the trails.

44 FOR DISCUSSION PURPOSES ONLY: PROPOSED AMENDMENTS TO SEC , AND RELATED TO E-BIKES ON CITY TRAILS ATTACHMENT 11 Section 1. Section (d)(18) of the Code of the City of Fort Collins would be amended to read as follows: Sec Prohibited acts; permits (18) Operate or park a motor vehicle, electrical assisted bicycle or other motorized means of conveyance anywhere in a natural area, other than on established roadways and in designated parking areas, except as permitted by ; provided, however, that a motorized wheelchair may be used by any person with a temporary or permanent mobility disability anywhere in a natural area that public access is allowed, and an other powerdriven mobility device may be used in a natural area by any person with a temporary or permanent mobility disability, in accordance with City regulations regarding such use of other power-driven mobility devices.... Section 2. to read as follows: Section of the Code of the City of Fort Collins would be amended Sec Electrical Assisted Bicycles in Natural Areas Class 1 and Class 2 electrical assisted bicycles are only allowed on paved designated trails in a natural area. Class 3 electrical assisted bicycles are not allowed on any trail in any natural area. For purposes of this section, electrical assisted bicycle will have same definition as in Section 2002 of the Fort Collins Traffic Code. Section 3. Section (a)(1) of the Code of the City of Fort Collins would be amended to read as follows: Sec Prohibited acts; permits. (a) It shall be unlawful to: (1) Operate or park a motor vehicle, electrical assisted bicycle or other motorized means of conveyance anywhere in a recreation area, other than on established roadways and in designated parking areas, or except as permitted by ; provided, however, that a motorized wheelchair may be used by any person with a temporary or permanent mobility disability, anywhere in a recreation area that public access is allowed, and an other powerdriven mobility device may be used in a recreation area by any person with a temporary or permanent mobility disability, in accordance with City regulations regarding such use of other power-driven mobility devices.

45 FOR DISCUSSION PURPOSES ONLY: PROPOSED AMENDMENTS TO SEC , AND RELATED TO E-BIKES ON CITY TRAILS... Section 4. Chapter 23, Article X of the Code of the City of Fort Collins would be amended to read as follows: Sec Electrical assisted bicycles in recreation areas. Class 1 and Class 2 electrical assisted bicycles are only allowed on paved designated trails in a recreation area. Class 3 electrical assisted bicycles are not allowed on any trail in any recreation area. For purposes of this Section, electrical assisted bicycles will have the same definition as in Section 2002 of the Fort Collins Traffic Code.

46 ATTACHMENT 12 AIR QUALITY ADVISORY BOARD TYPE OF MEETING REGULAR directly relate to the CAP and plans to continue involvement with the CAP in any way possible. Hugh asked if it would be possible for AQAB minutes to be posted to the City s website in a more timely manner. Arsineh responded that AQAB Members would also like to see meeting minutes posted sooner. The Board must vote to approve meeting minutes, so they cannot be posted sooner than one month after the meeting. The Board will speak with City Staff to try and get minutes posted as soon as they re approved. 5. APPROVAL OF MINUTES Chris moved and Greg seconded a motion to approve the December 17, 2018 minutes as revised. Motion passed, The Board would like to simplify meeting minutes going forward and have requested more concise summarizations of presentations and discussions. 6. UNFINISHED BUSINESS N/A 7. NEW BUSINESS a. E-bikes, 5:45 Jamie Gaskill, Program Specialist, discussed a possible pilot program to allow Class 1 and 2 E-bikes on Fort Collins paved trails. This is scheduled to be presented at a Council Work Session on February 12. Background E-bikes are rapidly growing in popularity in the US. Neighboring jurisdictions now allow e-bikes on trails. With new regional connections (ex. the Longview Trail) and more people commuting to Fort Collins from surrounding towns, it s a good time to consider allowing e-bikes on paved trails. Under Colorado House Bill , there are three classes of e-bikes. Class 1 and 2 e-bikes are allowed on pedestrian or multi-use paths; local governments have the authority to allow or prohibit them on trails. Class 1 bikes provide electrical assistance only while the rider is pedaling, up to 20 mph. Class 2 bikes provide electrical assistance regardless if the rider is pedaling or not, up to 20 mph. Class 3 e-bikes provide electrical assistance only when the rider is pedaling, up to 28 mph. Fort Collins currently prohibits the use of e-bikes while the motor is engaged on bike or pedestrian paths and on recreational trails, unless noted by City Code. Pilot Program The Bicycle Advisory Committee and Transportation Board would like to initiate a one- 1/28/19 MINUTES Page 2

47 AIR QUALITY ADVISORY BOARD TYPE OF MEETING REGULAR year pilot program to test out the use of Class 1 and 2 e-bikes on paved trails in Fort Collins, with extensive education outreach and evaluation for the duration of the program. The pilot will cost approximately $7,000 - $10,000. o Education will include trail etiquette guidance, information on how to provide feedback and report conflicts, trial signage, outreach events, brochures, handouts and posters, website and social media updates, and e-bike demo days. o The evaluation process will consist of measuring safety, perceptions, use and perspectives on allowing e-bikes on trails including a speed study, noise assessment, surveys, and review of reported conflicts and general comments. After the pilot is complete, findings will be presented to a cross-departmental Review Committee, Boards, Commissions, and City Council to determine if the program should be extended, made permanent, or terminated. Discussion The Board discussed some technical aspects of e-bikes, including various assist levels, and speeds and ranges associated with each class. E-scooters are not involved in the pilot as they are considered toys. They are currently only allowed on sidewalks in Fort Collins. Board members expressed concern that the presence of e-bikes may discourage other modes of travel on the City s paths; they enquired if this affect had been documented in other pilot programs. There is no definitive data documenting suppression of usage in response to the presence of e-bikes; Staff noted a Jefferson County study in which e-bike users were undetectable to other users. The Board discussed the speed study proposed as part of the evaluation process. Past studies have shown that e-bikes travel slower on multi-use trails than regular bikes, but City Staff want to see if this will hold true in Fort Collins. There is currently a recommended cap for speed at 15 mph, but it s not necessarily enforced due to the capacity of rangers. The Board expressed concern with the overpopulation of trails if e-bikes become popular quickly. They suggested confining the pilot to one trail or to bike lanes on roads to limit its impact; however, this approach may not provide enough valid data as population imbalances near different bike paths/lanes may skew the data collected. Furthermore, maintaining a low-stress bicycle trail network is a City priority and the multi-use trails are an important component in that network. Performing the pilot on these trails will be essential to measuring use and assigning value based on usage change. The Board asked if any studies have been done to determine how much vehicle-use would be reduced if e-bikes were available and whether emissions from tires on a 1/28/19 MINUTES Page 3

48 AIR QUALITY ADVISORY BOARD TYPE OF MEETING REGULAR paved path have been quantified. Jamie responded that she wasn t aware if such statistics were currently available. Staff Follow-Up: Jamie will follow up with the Board regarding vehicle emission reductions and possible emissions from tires. The Board discussed items to include in the evaluation survey, including a question to quantify the number of trips that people rode an e-bike instead of driving a vehicle. The survey will be comprehensive and collect data for all trail users, not just e-bike riders. Board members are generally in favor of the pilot, but noted a few concerns including overpopulation of multi-use paths and safety concerns, particularly for older citizens who utilize the bike paths. Jason moved and Matt seconded a motion to support the implementation of the proposed e-bike pilot as presented. Motion passed, b. City Plan and Air Quality Plan, 6:15-7:15 Aaron Iverson, Senior Transportation Planner, provided an overview of the City Plan Update process, and opportunities to provide feedback. The City Plan is scheduled for a Council Work Session discussion on February 12, and Council adoption on March 19. The City Plan will include updates to three policy-level plans including the Comprehensive Plan, Transportation Master Plan and Transit Master Plan. The City is in the adoption phase, during which it will be presented to the public for feedback before Council adoption on March 19. The Plan strives to emphasize three core community values including livability, community and sustainability. Within these areas, the following have been identified as community priorities: Housing o More options outside of houses and apartments o Increasing attainable housing options o Maintain and increase the number of affordable units Transportation o Adding more high frequency transit o Enhanced bike, pedestrian and transit networks o Roadway congestion management o Improve regional transit o Better connections between where we live/work Three possible scenarios that address these priorities at different levels have been analyzed (based on VMT/Mode Shifts). Based on this analysis, the preferred scenario falls somewhere between 2 and 3 and will greatly reduce vehicle miles traveled and 1/28/19 MINUTES Page 4

49 ATTACHMENT 13 February 12, 2019 Pilot Program Allowing E-bikes on Paved Trails City Council Work Session

50 Direction Sought 1. Does Council have any questions or concerns regarding the proposed electric-assist bicycle (e-bike) pilot program? 2. Should staff bring an ordinance to allow a one-year pilot program forward for consideration? 2

51 Electric-Assist Bicycle (E-bike) E-bike: a bicycle with two or three wheels, fully operable pedals, and an electric motor. Photo Source: Electrabike, Cannondale, Pedego, 3

52 E-bike Trends Most riders are over the age of 40 Helps overcome barriers to bicycling Offers health benefits Purchasing e-bikes to replace car trips, recreate, increase fitness Fastest growing category of bicycle sales in the U.S. (~1% of bicycle users in Fort Collins) 4

53 Existing Definitions & Regulations August, 2017 Colorado Legislature approved HB Establishes three classes of e-bikes, defines as bicycles Allows Class I and Class 2 on bike, pedestrian or multi-use paths Gives local governments authority to allow or prohibit on trails 5

54 Existing Definitions & Regulations Class 1 E-bike: Provides electrical assistance only while the rider is pedaling, up to 20 mph Class 2 E-bike: Provides electrical assistance regardless if the rider is pedaling or not, up to 20 mph 6

55 Existing Definitions & Regulations Fort Collins: Definition of e-bikes consistent with state regulations Prohibits the use of e-bikes while the motor is engaged on a bike or pedestrian path or on a recreational trail unless otherwise authorized by the City Code (ADA regulations) E-bikes allowed to operate on streets and in bike lanes 7

56 Existing Definitions & Regulations Colorado jurisdictions (examples) E-bikes allowed Pilot Program Loveland Larimer County Longmont Colorado Springs Boulder & Boulder County Jefferson County Durango Grand Junction 8

57 Proposed Pilot Program Background Staff presented pilot program to City Boards & Commissions: Bicycle Advisory Committee (support) Transportation Board (support) Natural Resources Advisory Board (support) Land Conservation & Stewardship Board (modified support) Senior Advisory Board (support) Parks & Recreation Board (support) Air Quality Advisory Board (support) Youth Advisory Board (pending) Commission on Disability (pending) 9

58 Proposed Pilot Program Background Questions and concerns voiced to date: Safety and speeds Trail congestion Enforcement E-bikes on soft-surface trails, Natural Areas Limit to certain trails Other e-devices Informed pilot program framework and proposed evaluation 10

59 Proposed Pilot Program One-year pilot period All paved trails (not soft-surface) Class 1 and Class 2 e-bikes only (consistent with State Legislation, neighboring jurisdictions) Extensive education, outreach and evaluation Present information to determine whether to continue, modify, expire, or make permanent 11

60 Proposed Pilot Program: Education Trail etiquette, information about the pilot program, how to provide feedback & report conflicts: Trail signage Outreach events (trail pop-ups ) Brochures, handouts and posters Website, social media, press releases, video E-bike demo days Partners and stakeholders organizations 12

61 Proposed Pilot Program: Evaluation Safety, perceptions, use, perspectives on allowing e-bikes on trails: Speed assessments Observations & counts Surveys (trail, online) Noise assessment Reported conflicts General comments 13

62 Parks and Natural Areas Rangers can enforce: Reckless and Careless Riding and e-bike specific regulations Proposed Pilot Program: Enforcement Pilot Program emphasis on education and data collection 14