HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 02/12/2019 - PILOT PROGRAM ALLOWING E-BIKES ON PAVED TRAILSDATE:
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 2010-2011, 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
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 17-1151 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
Definition
A bicycle with two or three wheels, fully operable pedals, and an electric motor that
does not exceed 750 watts.
February 12, 2019 Page 3
Class 1 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.
Class 2 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.
Class 3 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 17-1151 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.
February 12, 2019 Page 4
Pilot Duration One year with a 9-month evaluation period
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:
• 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 email 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.
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.
Follow-up and
further Council
action
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.
Key
Partnerships
Internal:
• Natural Areas
• Park Planning & Development
February 12, 2019 Page 5
• 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
Estimated Cost 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, 2019. 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)
1
1/31/2019 DRAFT WORKING DOCUMENT
E-bike Pilot Program Proposed Framework – City of Fort Collins
Table 1: Proposed Pilot Program Scope
Pilot Program
Scope
Proposed
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
outreach / public
input
• 2017-2019 Boards and Commissions
• Brief surveys at upcoming events (e.g., Open Streets); E-bike demos
• Ongoing data collection during fall bike counts (percentage of e-bikes)
Education /
Outreach
(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 / Data
Collection
(further outlined
below)
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
ATTACHMENT 1
2
1/31/2019 DRAFT WORKING DOCUMENT
• 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
3
1/31/2019 DRAFT WORKING DOCUMENT
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
Goal
Data collected Instrument Lead Location / Times
Speed
snapshots
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
Perspectives
on Pilot
Program,
Safety, Trail
Experience
General comments
through emails,
online comment
form
Reported to
Access Fort
Collins, Parks,
Park Planning,
Natural Areas,
Rangers or FC
Moves.
Comment form
4
1/31/2019 DRAFT WORKING DOCUMENT
Table 2 (continued): Proposed Pilot Program Evaluation
Method Evaluation
Goal
Data collected Instrument Lead Location / Times
Intercept
Survey
Perspectives
on Pilot
Program,
Safety, Trail
Experience,
Trip
Characteristics
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
Safety Crashes / Incidents
involving e-bikes
Access Fort
Collins
Police
Email
Unknown Ongoing
Noise
Assessment
Trail
Experience
Noise level of
different types of
bikes
Decibel
Readers
Natural Areas / FC
Bikes
1 x per year
Online
Survey
Perspectives
on Pilot
Program,
Safety, Trail
Experience
5
1/31/2019 DRAFT WORKING DOCUMENT
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 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?
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
E-mail
communications
Trail pop-up events
Other event
outreach (e.g., Bike
to Work Day, Open
Streets)
E-bike demo days
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.
ATTACHMENT 2
2
The BAC submitted a fact-based white paper regarding electric-assist bicycles to the
Transportation Board in September 2017. 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 2011-2014 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 45-65
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. Electric-
assist 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. 220-226.
3 Peopleforbikes.org, April 11, 2018.
4 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. 25-34.
3
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 electric-
assist 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
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,
Luke Caldwell
Chair, Bicycle Advisory Committee
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, 2017. 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 17-1151, “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 17-1151:
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
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 107-319. 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 “low-
speed 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.” Electric-
assist 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. 2002.11 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 electric-
assist 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 2106.3). 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,
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 1st
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).
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. 23-193(d)(18) for Natural
Areas and Sec. 23-203 (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 electric-
assist 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
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 2013. 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
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.
ȋȌǣ
1. Memo from Parks, Park Planning & Development and Natural Areas re: E-bike use on
Trails, June 2017
2. 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
TRANSPORTATION BOARD
TYPE OF MEETING – REGULAR
08/15/2018 – MINUTES Page 5
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
ATTACHMENT 3
TRANSPORTATION BOARD
TYPE OF MEETING – REGULAR
08/15/2018 – MINUTES Page 6
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 on-
street 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
City of Fort Collins
Senior Advisory Board
Minutes
Wednesday November 14, 2018 11:30 a.m.
Fort Collins Senior Center
1200 Raintree Drive
Fort Collins, Colorado 80526
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
ATTACHMENT 4
Environmental Services
222 Laporte Avenue
Fort Collins, CO 80521
970.221-6600
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
ATTACHMENT 5
2
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
NATURAL RESOURCES ADVISORY BOARD
REGULAR MEETING
10/17/2018 – MINUTES Page 3
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
NATURAL RESOURCES ADVISORY BOARD
REGULAR MEETING
10/17/2018 – MINUTES Page 4
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
Natural Areas Department
1745 Hoffman Mill Road
PO Box 580
Fort Collins, CO 80522
970.416-2815
970.416-2211 - 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.
ATTACHMENT 6
Parks & Recreation Board
Parks Maintenance Shop – 315 S. Bryan Abe
REGULAR MEETING December 5, 2018
12/05/2018 – MINUTES Page 3
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 email 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
ATTACHMENT 7
Parks & Recreation Board
Parks Maintenance Shop – 315 S. Bryan Abe
REGULAR MEETING December 5, 2018
12/05/2018 – MINUTES Page 4
Bruce made motion to support the e-bikes pilot program:
Ragan seconds
Motion passed 9-0
8. 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 1st United Methodist Church to make improvements
to Eastside Park. This effort will be part of their 150th 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 8th. This study will analyze if
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)
34
2
10
2
0
5
10
15
20
25
30
35
40
Yes, positive Yes, Negative No Change I'm not sure
# of Responses
ATTACHMENT 8
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)
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
64
16 13
0
10
20
30
40
50
60
70
Yes No I'm not sure
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
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
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.
Colorado E-bike Regulations
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
(include Lory State)
Class 1 and Class 2 e-bikes allowed (paved / unpaved)
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
https://www.bouldercounty.org/open-
space/management/e-bikes/
Pilot Program (started
Jan. 1, 2019)
Jefferson County Class 1 and Class 2 allowed on paved trails
Class 1 allowed on natural surface trails
https://www.jeffco.us/3618/e-bikes
Pilot Program
completed in 2018
Summit County Will decide in April 2019
http://www.co.summit.co.us/1185/ebikes
El Paso County Class 1 and Class 2 allowed
Pitkin County Class 1 allowed on paved and crusher fines trails
Douglas County Allowed
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)
http://nwccog.org/wp-content/uploads/2018/03/Vail-
Ordinance_No._5_Series_of_2018.pdf
Pilot Program, 2018
Colorado Springs Class 1 allowed on Urban Trails
Not allowed on Soft Surface
https://coloradosprings.gov/parks/page/electric-bikes-trails-
and-policies
Broomfield Class 1 and Class 2 allowed (paved and unpaved trails)
https://www.broomfield.org/2722/E-Bikes
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
https://www.gjsentinel.com/news/western_colorado/e-
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
ATTACHMENT 9
Colorado E-bike Regulations
(https://library.municode.com/co/superior/codes/municipal
_code?nodeId=CH8VETR_A RTIIIELVE )
Erie Class 1 and 2 allowed
Louisville Class 1 and 2 permitted on all official trails
Glenwood Springs Class 1 and 2 allowed
RFTA – Rio Grande
Trail
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.
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.
ATTACHMENT 10
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.
FOR DISCUSSION PURPOSES ONLY:
PROPOSED AMENDMENTS TO SEC. 12-193, 23-203 AND 23-305
RELATED TO E-BIKES ON CITY TRAILS
Section 1. Section 23-193(d)(18) of the Code of the City of Fort Collins would be
amended to read as follows:
Sec. 23-193 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 § 23-196; 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 power-
driven 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. Section 23-196 of the Code of the City of Fort Collins would be amended
to read as follows:
Sec. 23-196 – 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 23-203(a)(1) of the Code of the City of Fort Collins would be
amended to read as follows:
Sec. 23-203. 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 § 23-205; 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 power-
driven 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.
ATTACHMENT 11
FOR DISCUSSION PURPOSES ONLY:
PROPOSED AMENDMENTS TO SEC. 12-193, 23-203 AND 23-305
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. 23-205. 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.
AIR QUALITY ADVISORY BOARD
TYPE OF MEETING – REGULAR
1/28/19 – MINUTES Page 2
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, 4-0-4.
• 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 17-1151, 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-
ATTACHMENT 12
AIR QUALITY ADVISORY BOARD
TYPE OF MEETING – REGULAR
1/28/19 – MINUTES Page 3
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
AIR QUALITY ADVISORY BOARD
TYPE OF MEETING – REGULAR
1/28/19 – MINUTES Page 4
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, 8-0-0.
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
February 12, 2019
Pilot Program Allowing E-bikes on Paved Trails
City Council Work Session
ATTACHMENT 13
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
Electric-Assist Bicycle (E-bike)
E-bike: a bicycle with two or three wheels, fully operable pedals,
and an electric motor.
3
Photo Source: Electrabike, Cannondale, Pedego,
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
Existing Definitions & Regulations
August, 2017 – Colorado Legislature
approved HB 17-1151
• 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
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
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
Existing Definitions & Regulations
8
Colorado jurisdictions (examples) E-bikes allowed Pilot Program
Loveland
Larimer County
Longmont
Colorado Springs
Boulder & Boulder County
Jefferson County
Durango
Grand Junction
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
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
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
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
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
Proposed Pilot Program: Enforcement
• Parks and Natural Areas Rangers
can enforce: “Reckless and
Careless Riding” and e-bike
specific regulations
• Pilot Program emphasis on
education and data collection
14
Partners / Cost
Internal:
• Natural Areas
• Park Planning & Development
• Parks
• FC Moves / Bikes
• Police Services
• City Attorney’s Office
Estimated cost: $5,000 - $10,000
External:
• Bicycle organizations
• Bicycle retailers
• Colorado State University
• Public Health Graduate Class
• Regional partners
15
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?
16
Experience w/e-
bikes on trails,
observations, areas
of concern,
position on the
pilot program
Online survey FC Bikes Ongoing
Feedback
form at pop-
up events
Perceptions,
Trail
Experience,
Safety
Experience w/e-
bikes 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
Bike Retail
Sales (local)
Use, Trail
Experience,
Safety
Local Retail sales Tracking form FC Bikes / Bike Shops 1 x per year
Fall Bike /
Ped Counts
Use, Trail
Experience,
Safety
% e-bike use Standard
bike/ped count
form at trail
locations
(includes e-bike
tracking)
FC Moves /
Volunteers
September
created on
website
FC Bikes (other
Departments
maintain records of
comments received)
Ongoing
General
Ranger
Observations
Safety, Use Ex. How many e-
bikes observed, if
observed, (1)
appropriate
behavior, (2)
inappropriate/unsa
fe behavior (3)
location
Observation
form
Rangers Ongoing
• Parks
• FC Moves / Bikes
• Police Services