HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 04/07/2020 - ITEMS RELATING TO ELECTRIC ASSISTED BICYCLES ON PAAgenda Item 19
Item # 19 Page 1
AGENDA ITEM SUMMARY April 7, 2020
City Council
STAFF
Tessa Greegor, FCBikes Program Manager
Claire Havelda, Legal
SUBJECT
Items Relating to Electric Assisted Bicycles on Paved Trails.
EXECUTIVE SUMMARY
A. First Reading of Ordinance No. 058, 2020, Amending Chapter 23 of the Code of the City of Fort Collins to
Allow and Regulate the Use of Electrical Assisted Bicycles on the City’s Paved Trails.
B. First Reading of Ordinance No. 059, 2020, Amending the Fort Collins Traffic Code to Allow and Regulate
the Use of Electrical Assisted Bicycles on the City’s Paved Trails.
The purpose of this item is to present two ordinances for Council consideration to update Fort Collins City and
Traffic Code to allow Class 1 and Class 2 e-bikes on City-paved trails.
In April 2019, Fort Collins City Council approved a one-year pilot program to allow Class 1 and Class 2 e-bikes
on paved trails in Fort Collins. This one-year pilot program began May 1, 2019 and will end April 30, 2020.
Data and public input were collected during the pilot program, and staff has found no major issues associated
with allowing e-bikes on paved trails at this time. Research and the pilot program indicate e-bikes provide
mobility, sustainability, and health benefits, and can help achieve Fort Collins’ Climate Action and
transportation goals.
In conjunction with the recommendation to continue allowing Class 1 and Class 2 e-bikes on paved trails, staff
is also recommending strategies to ensure Fort Collins’ trail system remains a positive and safe experience for
all users as use increases, and to address concerns raised during the pilot program.
Key takeaways from the pilot program include:
• The pilot program did not result in any major safety incidents associated with allowing e-bikes on paved
trails.
• Public feedback and input from City Boards and Commissions indicated more support for allowing e-bikes
on paved trails than opposition, particularly Class 1 e-bikes.
• Bicyclist speed observations showed an average bicycle speed of just under 12 miles per hour (total of
1,157 bikes observed). Only 16 e-bikes were observed during the speed assessments with an average
speed of 15.63 mph.
• E-bike use is increasing though it remains a relatively small percentage of users on the trails today. Trail
count data from September showed 1.2% of bicyclists using e-bikes.
• Most E-bike owners reported bicycling more and replacing car trips with their e-bike.
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STAFF RECOMMENDATION
Staff recommends adoption of the Ordinances on First Reading.
The results of the pilot program and relevant research have informed staff’s recommended adoption of the
Ordinances allowing the use of Class 1 and Class 2 e-bikes on paved trails. City Council may wish to amend
the ordinances to only allow Class 1 e-bikes on paved trails based on certain City board recommendations and
the differences in public opinions and some staff opinions. A motion to make that revision is provided as
Attachment 10, in case that is desired.
E-bikes provide mobility, sustainability, and health benefits, and provide a strategy for achieving Fort Collins’
Climate Action and transportation goals. Further, as the region continues to connect the paved trail network,
consistently allowing e-bikes on paved trails across jurisdictions, offers people the option to commute longer
distances by bike and increases access to recreation opportunities. Most Colorado jurisdictions including
Loveland, Larimer County, and Boulder County, allow e-bikes on paved trails.
In conjunction with staff’s recommended ordinances to allow e-bikes on paved trails, staff is recommending
ongoing monitoring of trail utilization, user behavior, and continued education and outreach to address broader
concerns related to trail safety and remain proactive in anticipation of increased trail use in the coming years
(additional strategies detailed in the subsequent section).
BACKGROUND / DISCUSSION
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 (which at the time was the case for
Fort Collins).
Following adoption of this state law in 2017, the City’s Bicycle Advisory Committee (BAC) researched the topic
of allowing e-bikes on Fort Collins’ paved trail system and ultimately recommended the City pursue a pilot
program. Staff from FC Moves, Natural Areas, Parks, and Park Planning & Development developed the
framework for this pilot program, which was subsequently presented to nine City Boards, Commissions and
Committees for their consideration and action; eight voted in favor of a pilot program to allow e-bikes on paved
trails for one year.
In April 2019, Fort Collins City Council adopted Ordinance No. 045, which enacted a one-year exemption from
certain restrictions in the City Code to allow Class 1 and Class 2 e-bikes on paved designated trails in Fort
Collins. This one-year pilot program began May 1, 2019 and will end April 30, 2020.
Existing E-bike Code and Regulations
Consistent with Colorado Traffic Code, City Traffic Code defines e-bikes as a bicycle with two or three wheels,
fully operable pedals, and an electric motor that does not exceed 750 watts. City and Colorado Traffic Code
require e-bikes to conform to one of three classifications outlined in Table 1 and to be labeled accordingly. E-
bikes and e-bike riders are exempt from motor vehicle registration and license requirements.
Under Colorado law, Class 1 and Class 2 e-bikes are allowed on the same bicycle and pedestrian paths as
conventional bikes, unless regulated or restricted by local jurisdictions.
Except as authorized by the 2019 pilot program ordinance, Fort Collins City Code currently 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. E-bikes are otherwise legal and treated as traditional bicycles under
Fort Collins Code.
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Table 1: Classification of E-bikes (Colorado and Fort Collins Regulations)
Electric Assist Bicycle
Definition
A bicycle with two or three wheels, fully operable pedals, and an electric
motor that does not exceed 750 watts.
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. Class 3 e-
bikes include age restrictions and require the use of helmets for people
under the age of 18.
Other E-Devices
In 2019, Fort Collins also launched a one-year e-scooter share pilot program with the private scooter company
Bird. E-scooters and other e-devices (except for Class 1 and Class 2 e-bikes) are not currently allowed on Fort
Collins’ recreational trail system and are being managed separately from e-bikes. The timing of the 2017 state
law regarding e-bikes and the clear definition of e-bikes as bicycles in local and state statutes prompted staff to
approach the e-bike paved trail pilot program independently of other e-devices. As the use of e-scooters and
other e-devices increases and these modes become more established, staff will utilize upcoming Plan updates
to determine future management strategies and policies for such devices as part of Fort Collins trail system.
Literature Review Key Findings
During the pilot program, the City of Fort Collins joined Boulder County, Larimer County, and the City of
Boulder as a funding partner in the completion of a Literature Review to provide a snapshot of relevant
research related to e-bikes and how they are being addressed in other jurisdictions. The literature review also
assessed broader topics related to recreation conflict and emerging technology. The key findings from the
literature review were:
• E-bikes provide increased access to recreation and transportation; older adults are more likely to use e-
bikes for recreation and fitness whereas younger adults are more likely to use e-bikes for commuting,
utilitarian trips, and to replace car trips.
• The addition of the electric-assist encourages people to take more and longer trips by bike and offers
individual health benefits.
• E-bike users indicate feeling safer on an e-bike than a conventional bike given the ability to travel through
an intersection quickly or traverse challenging terrain.
• Safety, speed, crowding, and user conflict are common concerns related to bicycles, and even more so for
e-bikes. However, e-bike research has shown that people tend to view e-bikes more favorably once they
are exposed to or become familiar with e-bikes.
• The literature review found little research to suggest that e-bikes have greater negative impacts on trails or
wildlife than regular bikes.
• Many Colorado jurisdictions have acted to allow some or all classes of e-bikes on their trails.
Literature Review available online at: fcgov.com/ebikes
E-Bike Paved Trail Pilot Program Overview
The development, implementation and final recommendations of the e-bike pilot program were done in
partnership with multiple City Departments, including FC Moves, Parks, Park Planning and Development, and
Natural Areas. Police Services and Traffic Operations were also consulted for data and feedback. Community
and regional partners, including local bike shops, Colorado State University, bicycle organizations, and
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neighboring jurisdictions played a role in the pilot program as well. Students from the Colorado School of
Public Health were integral to the implementation of the e-bike pilot program.
The primary pilot program goals were:
• Assess public opinions 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 report back to decision makers in areas of concern
E-Bike Pilot Program Methods
The pilot program included the following evaluation methods:
• Public surveys and questionnaires: The pilot program included extensive data collection through
surveys and questionnaires. Surveys were administered on the trails, online, and during events.
Combining all surveys, over 1,100 responses were received, offering a good indicator of the perceptions
and experiences related to allowing e-bikes on Fort Collins paved trails. Trail surveys were conducted on
multiple days, during different time periods, and across the trail system to reach as many individuals as
possible. Over 650 surveys were completed by people on the trails and the online survey received 382
responses.
• Bicyclist speed snapshots: Bicyclist speeds were capturing during the pilot program using hand-held
pocket radar units with trained students. Speeds snapshots were captured on 19 different days in April,
July, August, September and October. Different locations and time periods were included in the analysis
on the following trails: Spring Creek Trail, Poudre Trail, Long View Trail, Mason Trail, and Power Trail. A
total of 1,157 bicyclists were included in the speed assessments with only 16 e-bikes observed.
• Annual trail counts including e-bike observations: Bicyclist and pedestrian counts were collected at 13
trail locations in September. These counts were used to track the percentage of bicyclists using e-bikes.
• Observations and feedback from City Rangers: During the Pilot Program, Staff requested feedback
from City Rangers regarding observations and reported conflicts with people utilizing e-bikes.
• Feedback from City Departments: Multiple City departments were involved in the pilot program with
feedback or data collected from Police Services, FC Moves, Natural Areas, Parks, Park Planning and
Development and Traffic Operations.
• Access Fort Collins and incident reports: Community members were encouraged to report issues or
comments using the City’s Access Fort Collins application, email, or report directly to Police Services.
• Other feedback (community partners, bike shops): Staff reached out to partners including local bike
shops, Colorado State University, and local bicycle organizations, to seek input regarding the pilot
program.
• Literature Review (led by Boulder County with funding provided by the City of Fort Collins): During
the pilot program, the City of Fort Collins joined Boulder County, Larimer County, and the City of Boulder
as a funding partner in the completion of a Literature Review to provide a snapshot of relevant research
related to e-bikes and how they are being addressed in other jurisdictions.
In addition, the following education and outreach was conducted during the pilot program:
• Educational handouts distributed through retailers and at events
• Temporary signage placed on the trails with information about the pilot program and the courtesy speed
limit of 15 mph
• Press release
• Website information
• Social media and email communications
• Trail “pop-up” education events
• E-bike specific outreach at major events including Open Streets, Bike to Work Day, Earth Day, and the
Bike Fix-it Bonanza
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• E-bike demos
• Distribution of hundreds of bike bells in partnership with Bike Fort Collins to emphasize safe passing
Pilot Program Results (see Attachment 1 for additional information):
Summary of Survey Feedback
• Public Opinions: Based on more than 1,100 survey responses, the majority of respondents indicated
support for allowing Class 1 e-bikes on paved trails (53% support, 15% oppose). A slightly higher
percentage of respondents indicated supporting Class 2 e-bikes on paved trails over opposing them (36%
support, 28% oppose), however the level of support was lower in comparison to Class 1 e-bikes.
Comments: The primary reasons people indicated support for e-bikes on paved trails were: provides
support for those needing additional assistance, no difference from a regular bike, and supports alternative
transportation. The primary reasons people indicated opposing e-bikes on paved trails were concerns over
safety and speed, perspectives of e-bikes being a motorized vehicle, and impact to trail experiences.
• Trail Experience: Several survey questions were used to assess overall trail experience as well as the
impact of e-bikes to users’ trail experience. Overall trail experience was rated very high by trail users. For
trail users who observed e-bikes during the day of the trail survey, very few survey respondents rated
those encounters as negative. Survey respondents who had experienced e-bikes on the paved trails were
asked to indicate how that has impacted their overall experience using the paved trails-between 72% and
86% of respondents rated the impact as Neutral/No Impact to Positive.
• Perception of Safety: Trail survey respondents were asked to rate, during daylight hours, how safe they
felt (typically) when using Fort Collins paved trails. Very few respondents reported feeling unsafe. 98-99%
of respondents reported feeling somewhat or very safe when using Fort Collins paved trails. This is a
question that can be asked in the future to determine changes in perception of safety.
• Crashes: During the e-bike pilot program, City departments did not receive reports of e-bike crashes on
the paved trails. Recognizing trail-related crashes may go unreported, Staff included a question on the trail
surveys to understand the prevalence of trail crashes. Of these survey responses, one person (of 427
responses) indicated experiencing an e-bike related crash on the paved trails in the previous 6 months.
• E-bike related trail conflicts: Out of 235 trail survey responses, three respondents indicated experiencing
conflict with an e-bike user. 90% of respondents reported not experiencing conflict on the trail that day. In
this context “conflict” was described as “trail users interfering with one another’s goals on the trail, causing
unpleasant experiences”.
Summary of E-bike Use
The use of e-bikes has increased in Fort Collins, but still represents a small percentage of bicycle users. Trail
count data from September showed 1.2% of bicyclists using e-bikes. Based on local survey results of e-bike
owners, the majority are 50+ years of age, and indicate bicycling more because of their e-bike and using their
e-bike to replace car trips. Local bike shops reported increased e-bike sales between 2018 and 2019 and
indicated selling almost entirely Class 1 e-bikes.
Summary of Bicycle Speed Snapshots
Bicyclist speeds were capturing prior to and during the pilot program using hand-held pocket radar units with
trained students. Speeds snapshots were captured on 19 different days in April, July, August, September and
October. Different locations and time periods were included in the analysis on the following trails: Spring Creek
Trail, Poudre Trail, Long View Trail, Mason Trail, and Power Trail. A total of 1,157 bicyclists were included in
the speed assessments with only 16 e-bikes observed.
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The average speed for all bikes was just under 12 miles per hour (11.93 mph), with an observed range of 1 -
24 miles per hour. For the 16 e-bikes observed, the average speed was 15.62 miles per hour, with an
observed range of 10 - 23 miles per hour. The low sample size for e-bike observations suggests a need to
continue monitoring speeds while also conducting education on safe trail speeds for all bicyclists.
Trail Ranger Observations
During the pilot program, Parks and Natural Areas Rangers were asked to provide reports of e-bike
observations and safety incidents involving e-bikes. While Rangers did observe e-bikes on the paved trails, no
e-bike safety incidents were reported by the Rangers on the paved trails.
Access Fort Collins Reports:
During the pilot program, approximately 25 emails or Access Fort Collins reports were submitted with some
indicating support for e-bikes and some expressing concerns or negative experiences with e-bikes on the
trails. Some of the comments received indicated experiences with illegal devices on the trails (e.g., gas-
powered bikes), which were not included in the pilot program.
The City’s Safe Routes to School Program Coordinator reported an interaction with an e-bike user riding at
high speed and behaving inconsiderately near a group of youth (it’s unclear if this was a legal e-bike allowed
on the paved trails). These reports indicate additional education and signage are warranted to inform trail
users of what is legally allowed on the trails, and to emphasize safe trail behaviors.
Feedback from Police Services
Fort Collins Police Services was asked to provide feedback regarding their experience during the pilot program
and if they had received reports regarding issues with e-bikes on paved trails. Police Services indicated that
allowing e-bikes on paved trails has not been an issue from their experience and they support continuing to
allow them.
Staff and Boardmember Concerns
While the staff recommendation and recommendation from most City boards consulted is to proceed with
allowing the use of e-bikes on paved trails, the following broader concerns were raised by some staff members
and boardmembers during the review process:
• Slippery slope: If e-bikes are allowed, this may result in a public perception that other e-devices are or
should be allowed.
• Enforcement: If the recommendation to allow e-bikes on paved trails comes with an expectation for
increased trail enforcement, the ability for staff to meet this expectation is of concern given existing
resources and other safety priorities.
• Future impacts to trail system: The use of e-bikes is currently low in Fort Collins. Concerns were raised
regarding the current design and capacity of the trail system, and how the system will accommodate
increased e-bike use in the future.
• Trail safety and experience: Concerns were raised around the potential future impact to trail user
experience and overall safety if the use of e-bikes on paved trails continues to increase.
• Impacts to youth and vulnerable populations: While staff and partners did not find research to suggest
increased e-bike use would have a negative impact on youth and other vulnerable populations, this was
raised a concern and may warrant additional monitoring and research.
In addition to the public feedback received during the pilot program, the input from staff and board members
has informed staff's additional recommendations for continued trail user education, ongoing monitoring, and
addressing broader trail use, design, and management questions through upcoming Plan updates (additional
details below).
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Pilot Program Conclusions and Recommendations
The information collected during the pilot program and relevant research informed staff’s final recommendation
to allow Class 1 and Class 2 e-bikes on paved trails following the completion of the pilot program. This
recommendation in conjunction with the below strategies was developed in partnership with multiple City
Departments, including FC Moves, Parks, Park Planning and Development, Natural Areas, and Police
Services. Feedback and recommendations from City Boards and Commissions, as well as community and
regional partners, also played a role in the final recommendations.
Recommended strategies to address concerns and maintain a positive user experience for all trail
users
• Conduct trail user education to promote safe and legal use of the trail system. Bicycle user speed
and trail safety remain concerns among trail users based on input received during the pilot program. Fort
Collins has a courtesy trail speed limit of 15 mph; while this is not an enforceable speed limit, it is an
important education tool. To continue to promote safe trail use and foster positive trail experiences, staff
recommends ongoing trail user education in partnership with FC Moves, Parks, Natural Areas, Police
Services, and community organizations to emphasize this courtesy speed limit, trail laws, and proper
etiquette.
• Conduct ongoing monitoring of trail utilization and experience, including the use of e-bikes, and
safety behaviors. With e-bikes representing a small percentage of total bicycle use on trails, staff proposes
to continue annual trail assessments to address safety issues if they arise. In addition, staff will use City
surveys (e.g., the Annual Community Survey) to evaluate changes in overall satisfaction with the trail
system.
• Trail signage: with the proposed changes to e-bike regulations, staff plans to install permanent signage at
key trail locations (e.g., at existing kiosks and trail access points) to notify the public which devices are
allowed and where along with safety information. This signage may be installed as part of a larger trail
signage effort planned by Park Planning & Development.
• Trail enforcement: A common comment regarding safe and legal trail use is for increased enforcement.
The City currently employs 8 Natural Area (patrol) Rangers and 3 Parks (patrol) Rangers who
cooperatively patrol the City’s the trail system. While Rangers are able to enforce certain violations on the
trails, including reckless riding, they are not fully commissioned officers and therefore do not have the
ability to pursue or “pullover” individuals. Further, staff believes enhanced education can address the
majority of concerns raised by the public with regard to the behaviors experienced on trails.
• Staff recommends utilizing upcoming Plan updates (e.g., Parks Master Plan and Trails Master Plan)
as the platform to engage in broader conversations around future trail system vision, the use of other e-
devices, and trail management and design strategies to accommodate increased use.
CITY FINANCIAL IMPACTS
The implementation of the recommended code changes will require minimal financial resources. The
installation of permanent trail signage and conducting additional trail user education is expected to cost less
than $5,000. The implementation of the education and ongoing data collection will be supported through
volunteers and partnerships with other organizations and will continue to be integrated into existing education
and outreach programs. Additional resources may be necessary if other recommendations are identified
beyond what is currently proposed, such as increased enforcement.
BOARD / COMMISSION RECOMMENDATION
Staff presented the results of the pilot program to the following City Boards, Commissions and Committees; to
date, seven have voted in favor of allowing both Class 1 and Class 2 e-bikes on paved trails, or just Class 1 e-
bikes.
• Senior Advisory Board (January 8 - subsequent action, voted in favor of allowing Class 1 e-bikes on paved
trails in conjunction with a requirement that e-bike users have insurance)
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• Land Conservation & Stewardship Board (January 8 - subsequent action, voted in favor of allowing Class 1
e-bikes on paved trails)
• Commission on Disability (January 9 - no action taken)
• Transportation Board (January 15 - voted in favor of allowing Class 1 and Class 2 e-bikes on paved trails)
• Parks & Recreation Board (January 23 - voted in favor of allowing Class 1 and Class 2 e-bikes on paved
trails, and recommended ongoing monitoring)
• Bicycle Advisory Committee (January 27 - voted in favor of allowing Class 1 and Class 2 e-bikes on paved
trails)
• Youth Advisory Board (February 5 - voted in favor of allowing Class 1 and Class 2 e-bikes on paved trails,
and supported allowing Class 3 e-bikes if they can be programmed to a 20 mph top speed)
• Natural Resources Advisory Board (February 19 - voted in favor of allowing Class 1 e-bikes on paved
trails)
• Air Quality Advisory Board (March 16 - canceled until further notice)
PUBLIC OUTREACH
In addition to the boards and commissions outreach conducted as part of this process, the pilot program
included extensive public outreach and engagement, including:
• Trail surveys, online survey, and event questionnaires
• Educational handouts distributed through retailers and at events
• Temporary signage placed on the trails with information about the pilot program and the courtesy speed
limit of 15 mph
• Press release
• Website information
• Social media and email communications
• Trail “pop-up” education events
• E-bike specific outreach at major events including Open Streets, Bike to Work Day, Earth Day, and the
Bike Fix-it Bonanza
• E-bike demos
• Distribution of hundreds of bike bells in partnership with Bike Fort Collins to emphasize safe passing
Following the completion of the pilot program, staff proposes ongoing public education and outreach to
maintain safe and legal trail use and promote a culture of respect among trail users.
ATTACHMENTS
1. E-Bike Paved Trail Pilot Program Report 2019-2020 (draft) (PDF)
2. Senior Advisory Board Recommendation and Minutes (PDF)
3. Land Conservation and Stewardship Board Recommendation and Minutes (PDF)
4. Commission on Disability Minutes, January 9, 2020 (PDF)
5. Transportation Board Minutes, January 15, 2020 (PDF)
6. Parks and Recreation Board Minutes, January 23, 2020 (PDF)
7. Bicycle Advisory Committee Minutes, January 27, 2020 (draft) (PDF)
8. Youth Advisory Board Recommendation (PDF)
9. Natural Resources Advisory Board Minutes, February 19, 2020 (draft) (PDF)
10. Proposed Motions to amend Ordinances to Class One Electrical Assisted Bicycles Only (PDF)
11. Powerpoint presentation (PDF)
Fort Collins Electric-Assist Bicycle Paved Trail Pilot Program Summary – 2019-2020
CONTENTS
OVERVIEW
BACKGROUND
Regulations
Other Jurisdictions
Other E-devices
E-BIKE LITERATURE REVIEW
Literature Review Key Findings
E-BIKE PILOT PROGRAM PAVED TRAIL OVERVIEW
SUMMARY OF SURVEY RESULTS
Perceptions Regarding E-bikes on Paved Trails
Trail experiences
Perception of Safety
E-bike Owners Specific Questions
SUMMARY OF SPEED SNAPSHOTS
Methods
Results
INCIDENT REPORTS
Trail Ranger Reports
Feedback from Police Services
Access Fort Collins Reports
E-BIKE USE
Trail Counts
Travel Behavior Survey
Bike Shop Input
RECOMMENDATIONS
Staff Recommendation for E-bike Regulations
Addressing Challenges and Concerns
Recommendations from City Boards and Commissions
ELECTRIC-ASSIST BICYCLES
2019 - 2020 FORT COLLINS PAVED TRAIL PILOT PROGRAM
DRAFT REPORT: MARCH 2020
ATTACHMENT 1
OVERVIEW
In April 2019, Fort Collins City Council approved a one-year pilot program to allow Class 1 and Class 2 e-bikes on paved
trails in Fort Collins. E-bikes were already legal on streets and treated like conventional bicycles under City Code, but
prior to the pilot program were not allowed to be used on trails in Fort Collins except for users with a temporary or
permanent disability under ADA regulations. The one-year paved trail pilot program began May 1, 2019 and ends April
30, 2020. Between April and December 2019, City staff and parters collected data and public input to assess perceptions
and impacts associated with allowing e-bikes on paved trails in Fort Collins. Public outreach and education about trail
etiquette and relevant laws were conducted during the pilot program as well. The primary pilot program goals were:
• Assess public opinions 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 report back to decision makers in areas of concern
The following report summarizes the results of the pilot program and recommendations for next steps. Key takeaways
from the pilot program include:
• Staff recommends allowing Class 1 and Class 2 e-bikes on paved trails in Fort Collins following the completion of the
pilot program.
• Research and the pilot program indicate e-bikes provide mobility, sustainability, and health benefits, and can help
achieve Fort Collins’ Climate Action and transportation goals.
• The pilot program did not result in any major safety incidents associated with allowing e-bikes on paved trails.
• Public feedback and input from City Boards and Commissions indicated more support for allowing e-bikes on paved
trails than opposition, particularly Class 1 e-bikes.
• Speed snapshots showed an average bicycle speed of just under 12 miles per hour (total of 1,157 bikes). Only 16
e-bikes were observed during the speed snapshots with an average speed of 15.63 mph.
• E-bike use is increasing though it remains a relatively small percentage of users on the trails. Based on paved trail
counts conducted in September, 1.2% of bicyclists observed were using e-bikes.
• Most e-bike owners reported bicycling more and replacing car trips with their e-bike.
As the demand for e-bikes continues to increase around the country and world, Fort Collins can expect to see more
people opting to purchase and utilize e-bikes on the trail system. In conjunction with staff’s recommendation to continue
allowing e-bikes on paved trails, staff is also recommending the following primary strategies to address broader concerns
related to trail safety, and remain proactive in anticipation of increased trail use in the coming years (additional strategies
detailed in the recommendations section).
• Conduct ongoing monitoring of trail utilization and experience, including the use of e-bikes, and safety behaviors.
With e-bikes representing a small percentage of total bicycle use on trails, staff proposes to continue annual trail
assessments to address safety issues if they arise. In addition, staff will use City surveys (e.g., the Annual Community
Survey) to evaluate changes in overall satisfaction with the trail system.
• Conduct trail user education to promote safe and legal use of the trail system. Bicycle user speed and trail safety
remain concerns among trail users based on input received during the pilot program. Fort Collins has a courtesy trail
speed limit of 15 mph; while this is not an enforceable speed limit, it is an important education tool. To continue
to promote safe trail use and foster positive trail experiences, staff recommends ongoing trail user education in
partnership with FC Moves, Parks, Natural Areas, Police Services, and community organizations to emphasize this
courtesy speed limit, trail laws, and proper etiquette.
• Staff recommends utilizing upcoming Plan updates (e.g., Parks Master Plan and Trails Master Plan) as the platform to
engage in broader conversations around future trail system vision, the use of other e-devices, and trail management
and design strategies to accommodate increased use.
2
BACKGROUND
In August 2017, Colorado passed House Bill 17-1151 concerning the regulation of e-bikes; this law established 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 (which at the time was the case for Fort Collins).
Following adoption of the new state law in 2017, 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. 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 nine City
Boards, Commissions and Committees for their
consideration and action; eight voted in favor of a
pilot program to allow e-bikes on paved trails for
one year. In April 2019, Fort Collins City Council
adopted Ordinance No. 045, which enacted a one-
year exemption from certain restrictions in the City
Code to allow Class 1 and Class 2 e-bikes on paved
designated trails in Fort Collins.
REGULATIONS
Under Colorado state law, E-bikes are classified as and have the same rights as traditional bicycles. E-bikes are defined
and categorized in three classes as outlined in
Table 1. State law allows Class 1 and Class 2 e-bikes
on trails unless explicitly prohibited by the local
jurisdiction. Under the state law, local jurisdictions
have the authority to regulate the use of e-bikes on
bicycle and pedestrian trails.
Consistent with Colorado law, Fort Collins’ City
Traffic Code defines e-bikes as a bicycle with two or
three wheels, fully operable pedals, and an electric
motor that does not exceed 750 watts. City and
Colorado Traffic Code require e-bikes to conform to
one of three classifications outlined in Table 1 and
to be labeled accordingly. E-bikes and E-bike riders
are exempt from motor vehicle registration and
license requirements.
Except as authorized by the 2019 pilot program
ordinance, the Fort Collins City Code prohibits the
use of e-bikes 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.
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
OTHER JURISDICTIONS
Since 2015, other states have been updating outdated laws regarding e-bikes, for example where e-bikes may have been
classified as mopeds or scooters and required licencing, registration and other restrictive requirements. The majority
of states now define e-bikes in their code and many have created the three-tiered e-bike classification as is the case in
Colorado and Fort Collins.
Since the 2017 state law was passed in Colorado, many Colorado jurisdictions have updated their e-bike regulations or by
default of the new law, now allow Class 1 and Class 2 e-bikes on multi-use trails. Table 2 highlights a handful a Colorado
jurisdictions and their current regulations. Some Colorado jurisdictions only allow Class 1 e-bikes on paved trails, but
most allow Class 1 and Class 2 e-bikes on paved trails.
OTHER E-DEVICES
In 2019, Fort Collins also launched a one-year e-scooter share pilot program with the private scooter company Bird.
E-scooters and other e-devices (except for Class 1 and Class 2 e-bikes) are not currently allowed on Fort Collins’
recreational trail system and are being managed separately from e-bikes. The timing of the 2017 state law regarding
e-bikes and the clear definition of e-bikes as bicycles in city and state statutes prompted staff to approach the e-bike
paved trail pilot program independently of other e-devices. As the use of e-scooters and other e-devices increases and
these modes become more established, staff will utilize the upcoming Parks Master Plan and subsequent Trails Master
Plan updates to determine future management strategies and policies for such devices as part of Fort Collins trail system.
E-BIKE LITERATURE REVIEW
During the pilot program, the City of Fort Collins joined Boulder County, Larimer County, and the City of Boulder as a
funding partner in the completion of a Literature Review to provide a snapshot of relevant research related to e-bikes
and how they are being addressed in other jurisdictions. The literature review also assessed broader topics related to
recreation conflict and emerging technology. The key findings from the literature review were:
LITERATURE REVIEW KEY FINDINGS:
• E-bikes provide increased access to recreation and
transportation; older adults are more likely to use
e-bikes for recreation and fitness whereas younger
adults are more likely to use e-bikes for commuting,
utilitarian trips, and to replace car trips.
• The addition of the electric-assist encourages people
to take more and longer trips by bike, and offers
individual health benefits.
• E-bike users indicate feeling safer on an e-bike than a
conventional bike given the ability to travel through
an intersection quickly or traverse challenging
terrain.
• Safety, speed, crowding, and user conflict are
common concerns related to bicycles, and even more
so for e-bikes. However, e-bike research has shown
that people tend to view e-bikes more favorably once
they are exposed to or become familiar with e-bikes.
• The literature review found little research to suggest
that e-bikes have greater negative impacts on trails
or wildlife than regular bikes.
• Many Colorado jurisdictions have acted to allow
some or all classes of e-bikes on their trails.
Available online at: fcgov.com/ebikes 4
Photo: e-trike on Poudre Trail
E-BIKE PILOT PAVED TRAIL PROGRAM OVERVIEW
The development, implementation and final
recommendations of the E-bike pilot program
were done in partnership with multiple
City Departments, including FC Moves,
Parks, Park Planning and Development, and
Natural Areas. Police Services and Traffic
Operations were consulted for data and
feedback as well. Community and regional
partners, including local bike shops, Colorado
State University, bicycle organizations, and
neighboring jurisdictions also played a role in
the pilot program. Students from the Colorado
School of Public Health were integral to the
implementation of the e-bike pilot program.
The following summarizes the primary methods
used to collect data and input during the pilot
program.
Public surveys and questionnaires: The pilot
program included extensive data collection
through surveys and questionnaires. Surveys
were administered on the trails, online, and during events. Combining all surveys, over 1,100 responses were received,
offering a good indicator of the perceptions and experiences related to allowing e-bikes on Fort Collins paved trails. Trail
surveys were conducted on multiple days, during different time periods, and across the trail system to reach as many
individuals as possible. Over 650 surveys were completed by people on the trails and the online survey received 382
responses.
Bicycle Speed Snapshots: Bicyclist speeds were
capturing during the pilot program using hand-
held pocket radar units with trained students.
Speeds snapshots were captured on 19 different
days in April, July, August, September and
October. Different locations and time periods
were included in the analysis on the following
trails: Spring Creek Trail, Poudre Trail, Long
View Trail, Mason Trail, and Power Trail. A total
of 1,157 bicyclists were included in the speed
assessments with only 16 e-bikes observed.
Annual trail counts including e-bike
observations: Bicyclist and pedestrian counts
were collected at 13 trail locations in September.
These counts were used to track the percentage
of bicyclists using e-bikes.
Observations and feedback from City Rangers:
During the Pilot Program, Staff requested feedback from City Rangers regarding observations and reported conflicts with
people utilizing e-bikes.
Feedback from City Departments: Multiple City departments were involved in the pilot program with feedback or data
collected from Police Services, FC Moves, Natural Areas, Parks, Park Planning and Development and Traffic Operations.
Photo: e-bike demos with Bicycle Advisory Committee
5
Photo: E-bike feedback from Bike to Work Day
Access Fort Collins and incident reports: Community members were encouraged to report issues or comments using
the City’s Access Fort Collins application, email, or report directly to Police Services.
Other feedback (community partners, bike shops): In addition, Staff reached out to partners including local bike shops,
Colorado State University, and local bicycle organizations, to seek input regarding the pilot program.
Literature Review (led by Boulder County with funding provided by the City of Fort Collins): During the pilot
program, the City of Fort Collins joined Boulder County, Larimer County, and the City of Boulder as a funding partner in
the completion of a Literature Review to provide a snapshot of relevant research related to e-bikes and how they are
being addressed in other jurisdictions.
Education and outreach: In addition, the following education and outreach was conducted during the pilot program:
• Educational handouts distributed through retailers and at events
• Temporary signage placed on the trails with information about the pilot program and the courtesy speed limit of 15
mph
• Press release
• Website information
• Social media and email communications
• Trail “pop-up” education events
• E-bike specific outreach at major events including Open Streets, Bike to Work Day, Earth Day, and the Bike Fix-it
Bonanza
• E-bike demos
• Distribution of hundreds of bike bells in partnership with Bike Fort Collins to emphasize safe passing
SUMMARY OF SURVEY RESULTS
While not all surveys were fully completed, Table 3 outlines the
number of responses to the primary questions by survey / feedback
form, with 1,174 responses summarized. It is likely there is some
duplication across surveys, but the overall percentage of this
duplication is expected to be low.
Mode during trail survey: Overall, more bicyclists stopped to
complete the trail surveys, with 35% walking or jogging, and 62%
bicycling or e-bicycling. Only 17 survey respondents were traveling by
e-bike during the survey. See Graph 1.
PERCEPTIONS REGARDING E-BIKES ON PAVED TRAILS
Level of Support for Class 1 and Class 2 e-bikes
on paved trails: All surveys included the same two
questions asking respondents to indicate their level
of support for allowing Class 1 and Class 2 e-bikes on
paved trails (questions separated by Class of e-bike).
All surveys showed clear support for allowing Class
1 e-bikes on paved trails. The responses for Class 2
e-bikes were more varied, but overall still indicated
slightly higher levels of support than opposition. See
Graphs 2-4.
Respondents were asked to explain why they
responded the way they did to the two questions
indicating level of support. With hundreds of
comments received, the primary reasons people indicated support for e-bikes on paved trails were as follows:
Table 3: Pilot program surveys
Survey Total Responses
Trail Survey (April) 315
Open Streets Survey 73
Online Survey 382
Trail Survey (Summer) 235
Trail Survey (Fall) 109
Winter Bike to Work
Day Survey
60
TOTAL 1,174
6
Walking Jogging Bicycling E-bicycling Skateboarding Other
Summer Trail Survey 31 5 185 9 2 2
Fall Trail Survey 18 5 79 6 1
• Provides support for those needing
additional assistance
• No difference from a regular bike
• Supports alternative transportation
The primary reasons people indicated
opposing e-bikes on paved trails were:
• Concerns over safety and speed
• Perspectives of e-bikes being a
motorized vehicle (especially for
Class 2 e-bikes)
• Impact to trail experiences
Perceptions regarding compatibility
with vulnerable trail users, including
seniors and youth: The online survey
and trail surveys conducted in the fall
asked people to indicate their feeling
about the compatibility of having
e-bikes on paved trails with vulnerable
users. With a total of 463 responses,
52% felt it was compatible, 33% felt it
wasn’t, and 15% were unsure.
Perceptions regarding requiring age
restrictions for the use of e-bikes:
The online survey and trail surveys
conducted in the fall asked people
to indicate their level of support for
7
173, 15%
229, 19%
618, 53%
107, 9%
47, 4%
INDICATE LEVEL OF SUPPORT FOR
CLASS 1 E-BIKES ON PAVED TRAILS
332, 28%
244, 21%
421, 36%
92, 8%
77, 7%
INDICATE LEVEL OF SUPPORT FOR
CLASS 2 E-BIKES ON PAVED TRAILS
Oppose
Neutral
Support
Support only on
certain trails
Not Sure
N = 1,174 (data from trail, online, and event surveys)
Graph 2: Position on allowing e-bikes on paved trails
14%
28%
41%
8%
9%
10%
15%
58%
15%
3%
23%
establishing age restrictions for the use of Class 1 and Class 2 e-bikes (currently Class 3 e-bikes have age restrictions given
the higher speed capability). Responses were mixed with 21% indicating “no restrictions”, 22% indicating “restricted to
16+”, 20% indicating “restricted to 18+”, 20% indicated “other”, and 17% indicated “not sure”.
TRAIL EXPERIENCES
Several survey questions were used to assess overall trail experience as well as the impact of e-bikes to users’ trail
experience. Overall trail experience was rated very high by trail users. For trail users who observed e-bikes during the
day of the trail survey, very few survey respondents rated those encounters as negative. Survey respondents who had
experienced e-bikes on the paved trails were asked to indicate how that has impacted their overall experience using the
paved trails – between 72% and 86% of respondents rated the impact as Neutral/No Impact to Positive (this percentage
varied by survey and was higher for trail surveys conducted in April).
How would you rate the overall quality of your experience using the Paved Trails TODAY? (Scale of 1-5 - Poor,
neutral, excellent). The trail surveys conducted in April and in the fall asked people to rate the overall quality of their
experience using the paved trails that day. 98-99% of respondents rated their experience a 4 or 5 on a scale of 1 to 5.
See Graph 5.
Did you feel crowded by the
number of other visitors on
the Paved Trails Today? A low
percentage of people indicated
feeling moderately or extremely
crowded by other visitors on
the trails during their trip that
day. When asked whether the
respondent felt crowded by
the number of bicyclists on
the trails that day, 92% rated
their experience between “not
at all crowded” and “slightly
crowded”; this percentage was
consistent for surveys conducted
in April and during the fall.
How often has each of
the following happened to you personally during THIS VISIT to the Paved Trails? When asked how often survey
respondents had observed unsafe or discourteous behaviors on their paved trail trip that day, between 87% and 95% of
respondents indicated that they “never” or “rarely” observed people on e-bikes behaving unsafely or being discourteous.
When asked about bicyclists in general, these percentages were slightly lower ranging from 76% to 85%. See Graph 6.
Did you encounter an e-bike user during your visit to the Paved Trails today?
During the April and fall trail surveys, people were asked if they encountered an e-bike user during their visit to the trails
that day. A higher percentage of people indicated encountering an e-bike user when the trail surveys were conducted in
the fall (20%, N=21 out of 106) as compared to April (6.5%, N=21 out of 321). For those who had encountered an e-bike
user, they were asked to rate the interaction on a scale of 1-5. Between 81% and 88% rated those interactions as Neutral
to Positive, with only a few rating the interaction on the negative end of the spectrum.
How Often do you encounter e-bike users when using Fort Collins Paved Trails?
Survey respondents were asked how often in general they encounter e-bike users on Fort Collins paved trails. The trail
surveys conducted in the fall and the online surveys indicated higher percentages of e-bike encounters, as compared
to the trail surveys conducted in April. Nevertheless, the percentage of people responding “Often” or “Almost Always”
remained relatively low at 15% or lower. See Graph 7.
8
0%
0%
1%
22%
76%
0%
0%
2%
21%
78%
1 (Poor)
2
3 (Neutral)
62%
50%
84%
75%
63%
63%
84%
77%
23%
26%
9%
12%
23%
21%
11%
11%
11%
21%
3%
8%
10%
12%
2%
6%
3%
3%
3%
5%
3%
5%
2%
6%
SAW BICYCLISTS BEHAVING UNSAFELY
(APRIL SURVEY)
SAW BICYCLISTS BEHAVING UNSAFELY
(FALL SURVEY)
SAW E-BIKES BEHAVING UNSAFELY
(APRIL SURVEY)
SAW E-BIKES BEHAVING UNSAFELY
(FALL SURVEY)
SAW BICYCLISTS NOT BEING
COURTEUS (APRIL SURVEY)
SAW BICYCLISTS NOT BEING
COURTEUS (FALL SURVEY)
SAW E-BIKES NOT BEING COURTEOUS
(APRIL SURVEY)
SAW E-BIKES NOT BEING COURTEOUS
(FALL SURVEY)
OBSERVED BEHAVIORS
Never Rarely Sometimes Often Almost Always
April Surveys: N = 307-318; Fall Surveys: N = 101-107
9
Graph 6: How often did you observe the following during your trip on the paved trails today?
96
157
56
3
1
10
44
If you have encountered e-bike users when using Fort Collins paved trails, how has that impacted your overall
experience using the trails? Based on responses to three surveys, between 72% and 86% of respondents rated the
impact of encountering e-bike users on the paved trails as Neutral/No Impact to Positive (combined 77%). See Graph 8.
Sometimes trail users interfere with one another’s goals on the trail, causing unpleasant experiences. This is
generally referred to as “conflict.” Did you experience conflict during your trip on the Paved Trails today? Based
on 235 responses to this trail survey question, 90% of respondents indicated not experiencing conflict on the trails during
their trip that day. For those who had experienced conflict, 3 respondents indicated that conflict involved an e-bike user
(1.3% of the total number of responses).
PERCEPTION OF SAFETY
A couple survey questions were used to evaluate overall trail safety and safety related to e-bikes. Trail survey
respondents were asked to rate, during daylight hours, how safe they felt (typically) when using Fort Collins Paved Trails.
Very few respondents reported feeling unsafe. 98-99% of respondents reported feeling somewhat or very safe when
using Fort Collins Paved Trails. This is a question that can be asked in the future to determine changes in perception of
safety.
In addition, trail survey respondents were asked to indicate if they had experienced a crash on the trails in the past 6
months. Of 427 respondents, 29 indicated that they had experienced a bicycle-related crash in the past 6 months; only
one respondent indicated that it had involved an e-bike.
E-BIKE OWNERS SPECIFIC QUESTIONS
Have you ridden an E-bike / do you own an e-bike? Out of 1,120 survey responses, 66% indicated “no” they hadn’t
ridden an e-bike, 22% indicated they had ridden one, and 12% indicated they owned an e-bike. See Graph 9. Of those
who indicated owning an e-bike, approximately 64% indicated being 50 years of age or older.
10
15
18
182
6
9
4
16
65
5
6
57
46
163
23
80
1 (NEGATIVE)
2
3 (NEUTRAL / NO IMPACT)
4
5 (POSITIVE)
IF YOU HAVE ENCOUNTERED E-BIKE USERS WHEN USING FORT
COLLINS' PAVED TRAILS, IN GENERAL, HOW HAS THAT IMPACTED
YOUR OVERALL EXPERIENCE USING THE TRAILS? (SCALE 1 - 5)
April Trail Survey Fall Trail Survey Online Survey
N = 695 (data from April & Fall Trail Surveys, and Online Survey)
Graph 8: How have e-bike users impacted your experience on the paved trails?
Does your e-bike encourage you to ride more?
Out of 112 survey responses (those who indicated owning an
e-bike), 92% reporting bicycling more because of their e-bike.
Do you Use your e-bike to replace car trips?
Out of 112 survey responses (those who indicated owning an
e-bike), 84% reporting using their e-bike to replace car trips.
Do you anticipate purchasing an e-bike in the next 3 years?
Out of 674 survey responses, 10% indicated “yes” they anticipate
purchasing an e-bike in the next 3 years. 18% indicated “I don’t
know / unsure”.
SUMMARY OF SPEED SNAPSHOTS
METHODS
Bicyclist speeds were capturing prior to and during the pilot
program using hand-held pocket radar units with trained
students. Speeds snapshots were captured on 19 different days
in April, July, August, September and October. Different locations
and time periods were included in the analysis on the following
trails: Spring Creek Trail, Poudre Trail, Long View Trail, Mason
Trail, and Power Trail. A total of 1,157 bicyclists were included in the speed assessments with only 16 e-bikes observed.
RESULTS
The average speed for all bikes was just under 12 miles per hour (11.93 mph), with an observed range of 1 - 24 miles
per hour. For the 16 e-bikes observed, the average speed was 15.62 miles per hour, with an observed range of 10 - 23
miles per hour. Table 4 summarizes the average
speed by trail location. The low sample size for
e-bike observations suggests a need to continue
monitoring speeds while also conducting education
on safe trail speeds for all bicyclists.
INCIDENT REPORTS
TRAIL RANGER OBSERVATIONS
During the pilot program, Parks and Natural Areas
Rangers were asked to provide reports of incidents
involving e-bikes. While Rangers did observe e-bikes
on the paved trails, no e-bike safety incidents were
reported by the Rangers on the paved trails.
FEEDBACK FROM POLICE SERVICES
Fort Collins Police Services was asked to provide
feedback regarding their experience during the pilot
program and if they had received reports regarding
Table 4: Summary of speed snapshots
Location Average
bicycle speed
Number of
bicyclists
included in
observation
Long View Trail near Scenic Drive 12.28 46
Mason Trail north of Harmony 12.69 61
Mason Trail north of Horsetooth 12.68 53
Poudre River Trail near Lee Martinez
Park
12.83 112
Poudre Trail east of Linden 10.41 104
Power Trail north of Drake 12.72 103
Power Trail south of Drake 10.21 70
Spring Creek Trail at Creekside Park 10.23 99
Spring Creek Trail at Edora Park 10.79 169
Spring Creek Trail at Rolland Moore
Park
13.72 163
Spring Creek Trail at Spring Canyon
issues with e-bikes on paved trails. Police Services indicated that allowing e-bikes on paved trails has not been an issue
from their experience and they support continuing to allow them.
ACCESS FORT COLLINS REPORTS
Staff encouraged the public to submit comments and concerns using Access Fort Collins and email. During the pilot
program, approximately 25 emails or Access reports were submitted with some indicating support for e-bikes and
some expressing concerns or negative experiences with e-bikes on the trails. Some of the comments received indicated
experiences with illegal devices on the trails (e.g., gas-powered bikes), which were not included in the pilot program.
The City’s Safe Routes to School Program reported an interaction with an e-bike user riding at high speed and behaving
inconsiderately near a group of youth (it’s unclear if this was a legal e-bike allowed on the paved trails). These reports
indicate additional education and signage are warranted to inform trail users of what is legally allowed on the trails, and
emphasize safe trail behaviors.
E-BIKE USE
The use of e-bikes has increased in Fort Collins, but still
represents a small percentage of bicycle users. During the
pilot program, e-bike use increased slightly (based on trail
counts). In addition, bike shop owners reported increased
e-bike sales from 2018 to 2019. It is expected the use of
e-bikes will continue to increase.
TRAIL COUNTS
The City conducts annual bicycle and pedestrian counts
on the trails and at street intersections every September.
Volunteers have been asked to record e-bikes when collecting
their counts. Since 2015, the percentage of e-bike users has
remained less than 1.5% of all bicyclists, but has increased
slightly over the years. In 2019, 1.15% of bicyclists counted on
the trails were using e-bikes.
TRAVEL BEHAVIOR SURVEY
The Fort Collins 2017 Travel Diary Study asked respondents
to report if they owned an e-bike: 2% of respondents indicated their household has one or more e-bike. If this survey is
funded in the future, it will provide a good indicator as to the growth in e-bike ownership locally.
BIKE SHOP INPUT
At the end of 2019, City staff reached out to local bike shop owners seeking their input on e-bike sales and trends. Of
those who responded, they reported increased e-bike sales between 2018 and 2019 and reported selling almost entirely
Class 1 e-bikes. They also indicated support for allowing e-bikes on paved trails and predicted steady growth of e-bike
sales in the future.
RECOMMENDATIONS
The information collected during the pilot program and relevant research informed staff’s final recommendations for
next steps with e-bike regulations on paved trails in Fort Collins. The recommendations were developed in partnership
with multiple City Departments, including FC Moves, Parks, Park Planning and Development, Natural Areas and Police
12
Table 5: Summary of annual bicycle counts
Year Type Cyclists E Bikes % E Bikes
2019 Trails 3561 41 1.15%
2019 Intersections 4559 65 1.43%
2019 Total 8120 106 1.31%
2018 Trails 4947 24 0.49%
2018 Intersections 5553 22 0.40%
2018 Total 10500 46 0.44%
2017 Trails 6409 34 0.53%
2017 Intersections 7389 36 0.49%
2017 Total 13798 70 0.51%
2016 Trails 3027 8 0.26%
2016 Intersections 3781 3 0.08%
2016 Total 6808 11 0.16%
2015 Trails 10448 14 0.13%
2015 Intersections 6315 12 0.19%
2015 Total 16763 26 0.16%
Services. Feedback and recommendations from City Boards and Commissions, as well as community and regional
partners, also played a role in the final recommendations.
STAFF RECOMMENDATION FOR E-BIKE REGULATIONS
The pilot program and relevant research has supported Staff’s recommendation to allow Class 1 and Class 2 e-bikes on
paved trails following the completion of the pilot program.
• E-bikes provide mobility, sustainability, and health benefits, and provide a strategy for achieving Fort Collins’ Climate
Action and transportation goals. Although the use of e-bikes in Fort Collins remains relatively low, it is expected use
will increase as the price point for e-bikes comes down and more people recognize the benefits e-bikes can provide.
• Regional consistency: Most communities surrounding Fort Collins allow or will be allowing Class 1 and Class 2 e-bikes
on paved trails. As Fort Collins continues to connect to the region through a robust trail system, and more people live
in surrounding communities, allowing e-bikes on trails fosters regional connectivity as well as legal consistency, and
increases opportunities for recreation and sustainable transportation.
• Public acceptance of e-bikes continues to grow as more people have individual experiences with them. The pilot
program results also suggest higher levels of acceptance of e-bikes among community members as compared to
previous efforts to gain input locally.
Staff will also present City Council with an alternative ordinance option of allowing just Class 1 e-bikes on paved trails as a
result of certain City Board recommendations, and the differences in public opinions and some staff opinions.
ADDRESSING CHALLENGES AND CONCERNS
While the staff recommendation and recommendation from most City Boards consulted is to proceed with allowing the
use of e-bikes on paved trails, the following broader concerns were raised by some staff members and Board members
during the review process:
• Slippery slope: If e-bikes are allowed, this may result in a public perception that other e-devices are or should be
allowed.
• Enforcement: If the recommendation to allow e-bikes on paved trails comes with an expectation for increased trail
enforcement, the ability for staff to meet this expectation is of concern given existing resources and other safety
priorities.
• Future impacts to trail system: The use of e-bikes is currently low in Fort Collins. Concerns were raised regarding the
current design and capacity of the trail system, and how the system will accommodate increased e-bike use in the
future.
• Trail safety and experience: Concerns were raised around the potential future impact to trail user experience and
overall safety if the use of e-bikes on paved trails continues to increase.
• Impacts to youth and vulnerable populations: While staff and partners did not find research to suggest increased
e-bike use would have a negative impact on youth and other vulnerable populations, this was raised a concern and
may warrant additional monitoring and research.
In addition to the public feedback received during the pilot program, the input from staff and board members has
informed staff’s additional recommendations for continued trail user education, ongoing monitoring, and addressing
broader trail use, design, and management questions through upcoming Plan updates (additional details below).
Recommended strategies to address concerns and maintain a positive user experience for all trail users:
• Conduct trail user education to promote safe and legal use of the trail system. Bicycle user speed and trail safety
remain concerns among trail users based on input received during the pilot program. Fort Collins has a courtesy trail
speed limit of 15 mph; while this is not an enforceable speed limit, it is an important education tool. To continue
to promote safe trail use and foster positive trail experiences, staff recommends ongoing trail user education in
13
partnership with FC Moves, Parks, Natural Areas, Police Services, and community organizations to emphasize this
courtesy speed limit, trail laws, and proper etiquette.
• Conduct ongoing monitoring of trail utilization and experience, including the use of e-bikes, and safety behaviors.
With e-bikes representing a small percentage of total bicycle use on trails, staff proposes to continue annual trail
assessments to address safety issues if they arise. In addition, staff will use City surveys (e.g., the Annual Community
Survey) to evaluate changes in overall satisfaction with the trail system.
• Trail signage: with the proposed changes to e-bike regulations, staff plans to install permanent signage at key trail
locations (e.g., at existing kiosks and trail access points) to notify the public which devices are allowed and where
along with safety information. This signage may be installed as part of a larger trail signage effort planned by Park
Planning & Development.
• Trail enforcement: A common comment regarding safe and legal trail use is for increased enforcement. The City
currently employs 8 Natural Area (patrol) Rangers and 3 Parks (patrol) Rangers who cooperatively patrol the City’s
the trail system. While Rangers are able to enforce certain violations on the trails, including reckless riding, they are
not fully commissioned officers and therefore do not have the ability to pursue or “pullover” individuals. Further,
staff believes enhanced education can address the majority of concerns raised by the public with regard to the
behaviors experienced on trails.
• Staff recommends utilizing upcoming Plan updates (e.g., Parks Master Plan and Trails Master Plan) as the
platform to engage in broader conversations around future trail system vision, the use of other e-devices, and trail
management and design strategies to accommodate increased use.
RECOMMENDATIONS FROM CITY BOARDS AND COMMISSIONS
Staff presented the results of the pilot program to the following City Boards, Commissions and Committees; seven voted
in favor of allowing both Class 1 and Class 2 e-bikes on paved trails, or just Class 1 e-bikes.
• Senior Advisory Board (January 8 – subsequent action, voted in favor of Class 1 e-bikes on paved trails in conjunction
with a requirement that e-bike users have insurance)
• Land Conservation & Stewardship Board (January 8 – subsequent action, voted in favor of Class 1 e-bikes on paved
trails)
• Commission on Disability (January 9 – no action taken)
• Transportation Board (January 15 – voted in favor of allowing Class 1 and Class 2 e-bikes on paved trails)
• Parks & Recreation Board (January 23 – voted in favor of allowing Class 1 and Class 2 e-bikes on paved trails, and
recommended ongoing monitoring)
• Bicycle Advisory Committee (January 27 – voted in favor of allowing Class 1 and Class 2 e-bikes on paved trails)
• Youth Advisory Board (February 5 - voted in favor of allowing Class 1 and Class 2 e-bikes on paved trails, and
supported allowing Class 3 e-bikes if they can be programmed to a 20 mph top speed)
• Natural Resources Advisory Board (February 19 – voted in favor of allowing Class 1 e-bikes on paved trails)
• Air Quality Advisory Board (March 16 – canceled until further notice)
14
19-20980
What’s the deal with
e-bikes?
Electric-assist bicycles, or e-bikes, are bicycles
that include a small electric motor and aid
the rider. For one year starting May 2019,
Fort Collins will allow Class 1 and Class 2
e-bikes on paved multi-use trails as part of
a pilot program.
• Class 1 and Class 2 e-bikes provide electric
assistance up to 20 miles per hour.
• Class 3 e-bikes are not allowed on any trails
in Fort Collins.
• E-bikes must be labeled by the manufacturer
according to their class and top speed.
• E-bikes are allowed on streets but not
allowed on unpaved trails in Fort Collins.*
• Class 1 and Class 2 e-bikes are also allowed
on paved trails in Larimer County and other
Colorado jurisdictions.
Happy Trails for All
Riding an e-bike, regular bike, skateboard or
walking your dog? Whatever you do, the trails
are for everyone and should be shared with
respect. Follow these important tips to
keep you safe, legal and friendly when
traveling trails.
• Buzzing is for Bees Not Trail Users:
Use an audible signal (a bell or your voice)
and give at least three feet when passing.
Make sure to pass on the left!
• Use Safe Speeds:
The trails have a courtesy speed limit of
15 mph, and less when passing or where
congested. Control your speed to create
comfortable trails for all!
• Do the “Right” Thing:
Keep your dogs, kids, strollers and whatever
else you bring along to the right side of the
trail, allowing two-way trac and safe
passing.
• Be Seen:
At night or when visibility is poor, bicyclists
are required to use a white front light and
rear red reflector. When walking, jogging
or using another mode, wear visible clothes
or reflective gear so other trail users can
see you.
BIKES
Knowing the rules
The E-bike Pilot Program is your opportunity to provide input!
Learn more and provide feedback at
fcgov.com/ebikes
LECTRIFY YOUR RIDE!
*In Fort Collins, e-bikes can be used as personal mobility
devices for people with disabilities. For more information
on these regulations, please visit the website below.
RECOMMENDATION FROM THE SENIOR ADVISORY BOARD
Q 1. Does the Senior Advisory Board support Staff’s recommendation to allow Class 1 and Class 2 e-bikes
on paved trails following the completion of the one-year pilot program?
A 1. While the SAB respects and understands the benefits that e-bikes can provide, the Senior Advisory
Board supports only allowing Class 1 Electric Assist Bicycles on paved trails under the condition that the e-
rider has valid insurance to cover compensatory damages for injury to other cyclists or vulnerable
pedestrians.
Q 2. Does the Senior Advisory Board have additional comments or suggestions related to e-bikes on paved
trails?
A.2 SAB could not reach a consensus to support Class 2 e-bikes on paved trails for reasons of speed (20
mph) of these motorized vehicles and related safety concerns. After expiration of City Ordinance 045 on
4/30/20, the Board encourages the City to continue researching e-bike issues related to community
education and monitoring of safety concerns, appropriate regulations and enforcement.
Respectfully submitted by
Myles Crane
Chair, Senior Advisory Board
Additional information emailed by Senior Advisory Board Chair:
One of our boardmembers, a young attorney who is an active trail cyclist, emailed the following comments which
would request you to please include with SAB materials that you forward to Council.
SAB has very much appreciated your dedication to this project including all of your presentations, follow-up and
sincere effort to get honest feedback from the various constituencies represented by B&C’s. -
Comment from board member: “In the past few weeks, I have reached out to a number of seniors who routinely
bike Fort Collins trails like the Spring Creek and Poudre trail. I also routinely bike these trails. We all believe it
would be premature to give a green light to the speedy class 2 bikes without some additional consideration of
safety standards. There is certainly a lot of benefit to these machines, but I just don't see the need to rush on an
issue that could hurt the people we are looking out for.”
ATTACHMENT 2
IX. New Business
a. E-Bike Presentation review – discussion about supporting the use of E-Bikes on Public Pathways.
i. Myles will draft a statement to City Council regarding support or opposition of the
presentation from last month.
b. SAB officer slate for March 2020 elections – Myles would like to continue as chairman and
recommended that Sarah continue as co-chair.
UPCOMING EVENTS and OTHER ANNOUNCEMENTS
I. Wellness and Retirement Expo at the Senior Center – representation from the board to have a booth.
II. March 11th, Center on Health Aging
III. Next Meeting will be held at Oakbrook II. 3300 Stanford Rd.
City of Fort Collins
Senior Advisory Board
Minutes
Wednesday January 8, 2020 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: light lunch will be served
X. Call to Order -11:35am
XI. Guest introductions: Elizabeth Blythe – Public Engagement Coordinator Boards and Commissions
XII. Administrative Items
a. Attendance: Excused: Jason Brabson, Myles Crane, Greg Wells In Attendance: Nancy Luttropp,
Jan Rossi, Suzanne King, Sarah Schilz, David Kovach Staff Katie Stieber, Lisa Hays
b. Approval of Minutes: David Kovach moved, Suzanne King seconded. Approved unanimously
c. Correspondence
d. SAB December Activities Update:
e. SAB 2019 Annual Calendar Update:
f. Public Participation: none
g. SAB Member Autobiography – Suzanne King
XIII. Today’s Speakers
Dianne Tjalkens: Fort Collins Consolidated plan – Social sustainability
Tessa Greegor: Update on the City’s E-Bike pilot program
a. The E-Bike presentation will be sent to all board members for feedback. A vote will take place
next meeting, with information being sent back to Tessa upon completion.
XIV. Ongoing initiatives
a. Feb 22nd Save the Date: Intergenerational Conversations at Rocky Mountain High School
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
Date: February 21, 2020
To: - City Council
From: - Land Conservation and Stewardship Board
Cc: Tessa Greegor, FCMoves Department
Bicycle Advisory Committee
Transportation Board
Subject: -E-bikes on paved recreation trails
_____________________________________________________________________________
On 8 January 2020, Tessa Greegor, City of Fort Collins’ Active Modes Manager, presented the
Land Conservation and Stewardship Board (LCSB) preliminary results from the 2019-2020 pilot
study of e-bikes on the City’s paved recreation trails. The LCSB found the pilot study results to
be valuable for the City’s development of e-bike policy and regulation.
Recommendation
The LCSB urges Council and City Management to exert all efforts to restrict e-vehicle use to
places where their use has been approved. Widespread, prominent signs will be needed, stating
what vehicles are allowed. At entrances to Natural Areas, signs must prominently state that all e-
vehicles are prohibited on soft-surface trails.
Analysis and acceptance of Class 1 e-bikes on paved recreation trails
Motorized vehicles have long been prohibited from operating on the City’s recreation trails.
Noise and pollution from internal combustion engines were primary drivers of the prohibition,
with higher motorized speeds and reduced safety important added concerns. Electric powered
vehicles are nearly silent and non-polluting. Absent the obvious drawbacks of noise and
pollution, it is tempting to ignore other concerns and treat e-vehicles as innocuous. Those other
concerns (safety, stewardship, and soft surface trails) are significant, though, and need ongoing
regulatory and management attention. E-bikes are still motor vehicles.
For people with limited abilities or with disabilities, e-bikes offer equalized enjoyment of the
paved recreation trails. Weaker partners of strong bicycle riders, for example, often report that
with e-bikes they can ride and keep up with their partners, while with conventional bikes they
cannot. These benefits to people with physical limitations cause the LCSB to support continued
regulated e-bike use on paved recreation trails.
The LCSB continues to recommend allowance of Class 1 and exclusion of Class 2 e-bikes on
paved trails.
ATTACHMENT 3
Page 2 e-bike memo to City Council February 21, 2020
Safety concerns
E-bikes travel at higher average speeds than purely human-powered bikes. That, after all, is the
point of the devices. Pilot study data demonstrate that e-bikes are about 33% faster (16 MPH v
12 MPH). Stopping distances in emergency situations increase by 75% with this speed
difference. Approach warnings from handlebar bells, given at the same distance, offer 25% less
time for other trail users to react to e-bikes than to standard bikes. If bells are sounded with
equal time warning, but at 33% greater distance, then sound volume is reduced by 44%. These
are safety concerns, and they affect users of Natural Areas because paved trails give access to
and pass through Natural Areas.
Natural Areas land stewardship concerns
The LCSB is concerned that the paved trail network is becoming less of a recreation amenity and
more of a transportation infrastructure component. If that trend goes too far, then the City may
need to consider separation of high-speed bikes from pedestrians. That would require a parallel,
duplicate trail network, at least in some places, and that is an expensive proposition both in
dollars and in land area. It would be unacceptable to pave more Natural Area land as part of
such a solution.
Finally, there will be a few scofflaw e-bike riders who will ride illegally on soft surface trails,
knowing that enforcement capacity is limited. E-powered mountain bikes have been introduced
into the market, and this threat will grow as market share increases. The added power of electric
assistance intensifies trail damage, particularly on steeper trails. Forceful signage about the
prohibition of e-bikes on soft surface trails, at numerous locations where paved trails provide
access to soft surface trails, is a necessary first step in preventing this impairment of our Natural
Areas.
Additional planning needs
The LCSB recommends comprehensive analysis and planning to address the needs stated above
and other needs that accrue from the introduction of e-bikes into the trail system.
MINUTES
CITY OF FORT COLLINS • BOARDS AND COMMISSIONS
Land Conservation & Stewardship Board
Regular Meeting
17 45 Hoffman Mill Road
5:30 p.m.
January 8, 2020
1. CALL TO ORDER:
Cttyof
~ Commissions
Raymond Watts, LCSB Vice Chair called the meeting to order on behalf of the Chair Joe
Piesman. Joe Piesman's appointment expired December 31, 2019.
2. ROLL CALL: David Tweedale, Edward Reifsnyder, Andrea Elson, Kelly Ohlson, Alycia
Crall, Raymond Watts, Mike Weber
Excused:
Unexcused:
NAD Staff: Michelle Vattano, Dave Myers, Zoe Shark
Guests: Joe Piesman former Chair for the Board, Ann Grant, William Vieth, Wildland
Restoration volunteers, Tessa Greegor, FC Moves
3. AGENDA REVIEW: Ray suggested moving the Harmony Gateway item later on the
agenda since John Stokes won't attend the meeting until approximately 7:00 p.m.
4. CITIZEN PARTICIPATION: Ann Grant introduced herself as an advocate fore-bikes and
asked the Board to consider any decisions that would encourage e-bikes as an alternative
use of transportation. She asked that if the Board were going to recommend any
restrictions that it consider the City's overall recommendation of alternative uses of
transportation.
Will Vieth explained that he purchased an e-bike and would like to support e-bike usage on
local trails.
5. APPROVAL OF MINUTES: Mike suggested changing the language under the Soaring
Vista Easement Request to reflect the developers have met "acceptable alternatives"
versus "all alternatives" have been met. He also suggested under the Bicycle Advisory
Committee (BAC) report language be changed to reflect that October was the last meeting
he had attended.
Andrea Elson made a motion to approve the amended December LCSB meeting
minutes. Mike Weber seconded the motion. The motion was unanimously approved.
6. UNFINISHED BUSINESS: Kelly mentioned some items at the last meeting that warranted
follow up. A list of about a dozen issues were given. Ray made a list of 26 issues that were
01 /08/2020 - MINUTES Page 1
MINUTES
CITY OF FORT COLLINS • BOARDS AND COMMISSIONS
Land Conservation & Stewardship Board
Regular Meetin9
Cltyof
~ Commissions
discussed at various times that required follow up as well. He will share those items in an
email. He also invited the Board to voice any other items that might require follow up. Ray
and Kelly thanked Zoe and staff for the rapid response to following up on items that were
brought up during the last meeting.
7. COMMUNICATION AND BOARD MATTERS:
8. NEW BUSINESS:
ACTION ITEM
E-bikes
Tessa Greegor, FC Moves provided an update on the electric assist bicycle Paved Trail
Pilot Program. The Bicycle Advisory Committee along with the Transportation Board
agreed to a one-year pilot program to allow e-bikes on paved trails. Class 1 and Class 2 e-
bikes were considered for the pilot. After much discussion and presentations, the LCSB
voted to support Class 1 e-bikes for the pilot period only. City Council approved a one-year
study, May 1, 2019 through April 30, 2020 and allowed an exemption from certain
restrictions to allow Class 1 and Class 2 e-bikes on paved trail during the trial.
Tessa reviewed the pilot program including methods, key takeaways and public opinions.
Education and safety were also two key components of the pilot program. A majority of
those surveyed support Class 1 on paved trails. More people indicated support for Class 2
that opposition, but level of opposition is higher for Class 2. Staff recommendations are to
either allow Class1 and Class 2 e-bikes on paved trails or to allow Class 1 e-bikes on paved
trails. The second option would include continuing the pilot of Class 2 e-bikes for one more
year to collect additional data. Overall Tessa is seeking feedback and action by the Board
to support Class 1 and Class 2 bikes on paved trails. She will be taking the information to
City Council on March 17th.
The Board agreed not to make a recommendation at this time but agreed to draft a
memorandum to Tessa and City Council with their recommendation. Ray and Alycia will
work together to draft the memo.
LCSB Annual Report
Ray suggested using the LCSB Annual Report as an opportunity to communicate to City
Council concerns the Board has had over the last year that were never communicated. He
feels the report, over the last few years, has not done that. As an independent advisory
Board Ray feels Boards should be able to design their individual annual reports to articulate
additional strategic concerns. Michelle drafted a rather short, bullet type report listing the
01 /08/2020 - MINUTES Page 2
Thursday, January 9, 2020 at 12:15-2:15 p.m.
CIC Room, City Hall, 300 LaPorte Avenue
01/9/2020 – MINUTES Page 1
COMMISSION ON DISABILITIES (COD)
REGULAR MEETING – Contact: Carol Thomas, Equal Opportunity & Compliance Manager – 416-4254
1. CALL TO ORDER
a. Marilee Boylan called to order at 12:18pm
2. ROLL CALL
a. Present: Mandy Morgan, Sherri Reichow, Marilee Boylan (by phone)
b. Board Members Absent: Terry Schlicting,
c. Staff Members Present: Elizabeth Blythe, Carol Thomas, Tessa Greegor (FC
Moves), Nick Sporer Emergency Preparedness
d. Guests: Austin CSU Dept of Deliberation
1. AGENDA REVIEW
2. APPROVAL OF MINUTES
Marilee – corrections or clarifications she’d like to make:
pg 2, letter c, b, “the network would be removing scooters” should be “Bird should be
removing scooters when they are ditched.”
pg 2, letter d- “to remove the bike paths”
pg 5, “example of acceptable bus stops” “example the city updating accessible bus stops
much faster after having advocacy” meaning that the stops were more accessible after
the COD advocated for such.
pg 8, “do some education with council to help them with diverse hiring goals”
Changes will be noted and voted to accept when quorum is available.
3. PUBLIC PARTICIPATION
4. PRESENTATIONS AND DISCUSSIONS
TESSA GREEGOR: FC MOVES
1. Does the COD have input on the e-bike?
2. Background:
a. Class 1 e-bike
b. Provides electrical assistance only while the rider is pedaling, up to 20 mph
c. Class 2 e-bike
d. Provides electrical assist ace regardless if the rider is pedaling or not, up to
20 mph
e. Conversation was prompted by ne legislation in 2017, and changed
definition from a motorized vehicle to a bicycle with a motor, allows e-bikes
to be used where other bikes are used, given local restrictions.
ATTACHMENT 4
Thursday, January 9, 2020 at 12:15-2:15 p.m.
CIC Room, City Hall, 300 LaPorte Avenue
01/9/2020 – MINUTES Page 2
COMMISSION ON DISABILITIES (COD)
REGULAR MEETING – Contact: Carol Thomas, Equal Opportunity & Compliance Manager – 416-4254
3. 2018-2019 Bicycle Advisory Committee and Transpiration Board recommend a
one-year pilot program. The COD gave recommendations but did not support the
change of city policies
a. Ordinance No. 45 will expire May 1, 2020 if council takes no action.
b. Class 1 and 2 e-bikes are allowed on trails from April 30, 2019 to May 1,
2020
c. April 2019- Dec 2019 Pilot Program outreach, data collection and analysis
4. Will return to council in March
a. Trail etiquette, information about the pilot program, how to provide
feedback and report conflicts:
5. Evaluation: Safety, perceptions, use, and perspectives on allowing e-bikes on
trails: speed assessments, observations and counts, surveys, and more.
6. Methods: various surveys, many took place on trails, online and at city events.
Received 1,174 survey responses
7. Key Takeaways
a. Public opinions majority support class 1 on paved trails, more people
indicated support for Class 2 than opposition, but level of opposition is
higher for Class 2.
b. Safety – no crashes reported, few incidents reported, speed snapshots
showed higher average ebike speeds
c. Trail experience surveys indicated high quality of use experience
d. E-bike use increased slightly
e. Ridership benefits: ebikes owners bicycled more
f. Survey Responses
g. 40% female, 57% male, 3% other/declined
h. Highest age group 60-69
i. Class 1 ebikes 53% support, 19% neutral, 15% oppose
j. Class 2 36% support, 21% neutral, 28% oppose
k. Surveys were conducted before and then again during the pilot program,
support levels rose and levels of opposition are slightly higher.
8. Comment Themes
a. Support those needing aid
b. Same as standard bike. no new issues
c. Provides alternative transportation
d. Speed concerns
e. Motorized vehicle – not a bike – more prevalent in class 2 ebikes
f. Safety concerns
g. Disrupt atmosphere/ trail experience
Thursday, January 9, 2020 at 12:15-2:15 p.m.
CIC Room, City Hall, 300 LaPorte Avenue
01/9/2020 – MINUTES Page 3
COMMISSION ON DISABILITIES (COD)
REGULAR MEETING – Contact: Carol Thomas, Equal Opportunity & Compliance Manager – 416-4254
h. Vulnerable users: Do you think allowing ebikes on trails is compatible with
vulnerable trail users and children?
i. Age restrictions and helmet restrictions, results were split pretty evenly
between no restriction, restricted 18+, restricted to 16+, not sure, other
j. Police have no concerns with age restrictions nor with ebikes at this time
9. EBIKE USE
a. Slight increase (1-2%) of ebike riders on trails, bike shops report increased
interest with slow and steady growth in sales
b. Age is a factor
c. Safety
d. Reported crashes involving ebikes
i. 0 during pilot
ii. 2 reported crashes 2016, not on trail
e. Ranger reports
i. Soft surface trails 5 ebikes
ii. Paved trails 6 ebikes, no issues observed
f. Few incidents reported
i. Police reports: 0
ii. Self-reported trail crashes in past 6 months intercept survey)
iii. 93% (no) – 398/427
iv. 29 people (yes) – 1 involved an ebike
NOTE: If a crash occurs on trail it is rare that it would be reported to police
g. Speed Observations
i. Out during different times during the day, different locations, all trails
ii. All bikes speed observation between 1-24mph, average speed was
about 12 mph
iii. Average ebikes speed between 10-23mph, average 15.6mph
iv. Boulder County did a similar study, their speeds were slightly higher
10. Trail Experience
a. During pilot: 83% reported Excellent
b. Trail Conflict
c. Observed ebikes/ Bike Behavior
d. Intercept Surveys
i. Never or Rarely bicyclists behaving unsafely 85%
11. Next Steps:
a. Community input
b. Boards and Commissions outreach (Jan/Feb/March)
c. Finalize staff recommendation
d. City Council in March 2020
Thursday, January 9, 2020 at 12:15-2:15 p.m.
CIC Room, City Hall, 300 LaPorte Avenue
01/9/2020 – MINUTES Page 4
COMMISSION ON DISABILITIES (COD)
REGULAR MEETING – Contact: Carol Thomas, Equal Opportunity & Compliance Manager – 416-4254
12. Moving Forward:
a. Will continue trail user education
b. Parks and Rec is updating policy plan – opportunity for dialogue around all
e-devices, future vision for trail system
c. Continue monitoring safety concerns to determine if additional regulations
or enforcement are needed. IE: Trail speed limit
13. Preliminary Staff Recommendation:
a. Allow Class 1 and Class 2 ebikes on paved trails and continue education
and monitoring of safety concerns to determine if additional regulations or
enforcement are needed.
b. Alternative option would be to only allow class 1 on paved trails
14. Does the COD have input on the electric assist bicycles paved trail pilot program?
Would the COD like to make a recommendation prior to City Council action in
March/April?
CAROL – can only make a board recommendation if there’s a quorum.
MARILEE – would like language to be more “commuter focused”, bike paths
should not be considered an alternative transportation area, has traditionally been
a walking, self-paced path.
TESSA – this is a topic of conversation that potentially will happen with the parks
and rec policy update. Larger conversation that should be happening to better
define what trails are used for.
MARILEE – this seems to open opportunities for escooters and motorized
skateboards on the trails with minimal monitoring.
Personally, I prize self-powered (human powered) spaces, green, quiet spaces.
They need to be protected, in town and out of town.
15. Is COD interested in providing recommendation if there’s a quorum prior to
Council presentation in March?
MARILEE – yes
MANDY – feels the COD has provided a statement before, and feels that is would
just be restated again
SHERRIE – research shows that safety has not been huge incidents and that
majority of people are for it, so it seems like a good program.
CAROL will send out an update to all COD members if additional COD members
are appointed prior to March and report back to Tessa
Nick Sporer, Fort Collins Emergency Preparedness and Security
1. Background of EPS
a. Formerly part of Poudre Fire Authority
TRANSPORTATION BOARD
TYPE OF MEETING – REGULAR
1/15/2020 – MINUTES Page 3
Gloss stated staff is proposing requiring stealth cell tower installations. He discussed
some of the natural features of the area.
(**Secretary's Note: Brown arrived during the presentation.)
Chair Hart stated he is impressed with what has been kept in mind for the feel of the
area including the adjustments to the mix of uses. He mentioned the possibility of
utilizing some of the area for natural education. Gloss noted the water
encumbrances lead to safety concerns in the area which has been a sticking point for
the Natural Areas program.
Chair Hart suggested placement of interpretive signage could be helpful for some
type of historical and natural context.
York asked how a trail for pedestrian-powered uses would count toward the mix of
uses percentages. Gloss replied it would be part of satisfying the 40% naturalistic
coverage goal but would not have any impact on the use mix ratios.
Gavaldon made a motion, seconded by Boeke, to recommend adoption of the
Harmony Corridor Plan to City Council as presented.
The motion was adopted unanimously.
b. E-Bike Pilot Program – Action – Tessa Greegor
Greegor discussed the various steps that led to the formation of the one-year pilot
program to allow class 1 and 2 E-bikes on paved trails. She stated Council would
need to take action prior to the end of the pilot program, on April 30th
, in order for it
not to end. She noted class 3 E-bikes were not included in the state regulations nor
this pilot program.
Brown asked if it is possible to change a regular bike to an electric bike or to upgrade
the class of an E-bike. Greegor replied that is likely possible, but that would not
necessarily make a legal E-bike which are labeled as such by manufacturers.
Greegor outlined the goals of the pilot program and detailed the results of the survey
data received throughout the pilot.
Members discussed speed limits and appropriate associated signage. York
suggested the possibility of having speedometers on trails as many bicycles do not
have their own.
Greegor stated the overall takeaways from the survey results include support for
allowing class 1 E-bikes on paved trails and some additional opposition but overall
support for allowing class 2 E-bikes on paved trails. She stated no crash reports
were received and very few incidents were reported, though she acknowledged there
were likely unreported crashes.
Members discussed incidents they have had on paved trails with cyclists and other
ATTACHMENT 5
TRANSPORTATION BOARD
TYPE OF MEETING – REGULAR
1/15/2020 – MINUTES Page 4
users.
Greegor discussed survey data related to age restrictions and noted class 3 E-bikes
have both an age and helmet restriction, though class 1 and 2 do not. She also
discussed information related to the number of E-bikes sold locally stating the
number more than doubled from 2018 to 2019. She stated the majority of those sold
locally have been class 1.
York noted the cost savings for buying a class 2 E-bike online versus in the store is
significant which may be a reason for lower local sales of class 2 bikes.
Boeke asked how much a class 1 bike typically costs. Chair Hart replied they are
between $500 and $800 and a basic class 2 is $1,000, or $1,400 fully outfitted online.
Greegor discussed the methodology used to garner speed information on trails and
resulting data. She also discussed data related to observations of unsafe behavior.
Greegor outlined next steps in this process and stated the staff recommendation will
be finalized after garnering input from boards and commissions. She stated the
Parks Department is currently in the process of updating its policy plan which will
provide a good opportunity for having conversations around trail philosophy and
management. She stated the current staff recommendation is to allow class 1 and 2
E-bikes on paved trails with ongoing monitoring. She stated the alternative
recommendation would be to just allow class 1 with or without a continued pilot for
class 2.
Brown clarified any individual with a disability can use a class 2 E-bike or other
motorized device on a trail regardless of the outcome of this pilot.
Brown asked what signage changes are planned for unpaved trails and to inform
individuals that gas-powered bikes are not E-bikes. Greegor replied some signs
already exist and the specific plan for additional signage has yet to be outlined.
Sizemore noted that the staff team that developed the proposed recommendation
included a variety of opinions covering the full range of possible recommendations.
For the record, he indicated that Nancy Nichols, the Safe Routes to School
coordinator, wanted to ensure boardmembers are considering impacts on youth trail
users. Sizemore stated Nichols does not believe E-bikes should be allowed on
paved trails and had reported negative interactions with e-bike users while using the
trail system with children. The board acknowledged this position.
Chair Hart made a motion, seconded by Rachline, that the Board support the staff
recommendation to allow class 1 and class 2 E-bikes on paved trails.
Boeke expressed support for the motion and requested additional information
regarding Nichols' position. Sizemore replied Nichols had weighed what she
perceived as the benefits of E-bikes versus the potential risks for youth in particular,
TRANSPORTATION BOARD
TYPE OF MEETING – REGULAR
1/15/2020 – MINUTES Page 5
and found the risks to outweigh the benefits.
Chair Hart noted there is potential for allowing E-bikes to change the feel of the trail
as there may be more bikes and a greater average speed. He stated his desire is to
see more trail use and this is one way of affecting change in that regard.
Brown stated she would hesitantly oppose the motion as she is in support of
replacing car trips, however, she does not feel the paved trails are at the
infrastructure level they need to be to support more E-bikes. She also noted there
will be increased numbers of E-bikes as costs decrease.
York suggested infrastructure needs to be improved as the number of users increase
and stated the discussion of policies around all E-devices in future trail management
needs to occur sooner rather than later.
Gavaldon stated there may need to be some additional education on sharing trails.
The motion was adopted with Brown voting in the negative.
c. Master Street Plan Amendment – Action – Aaron Iverson
Iverson outlined the purpose of the Master Street Plan, discussed proposed changes
to railroad locations made since last month, and stated he is seeking a
recommendation to City Council from the Board.
Members discussed the proposed changes. York suggested using different colors on
the map for different priority levels. Members discussed whether the plan provides
potential or desired changes. Iverson replied he would not recommend illustrating
priorities on the map as the plan is not intended to show timing.
Iverson noted the large categories of changes for this recommendation include
reclassifications, the addition of roundabouts, and railroad crossing shifts.
Chair Hart asked what impact York sees for the Board providing support for the draft
as presented. York replied it could be improved by including references to the
railroad crossing study.
York made a motion, seconded by Boeke, to recommend to City Council approval of
the Master Street Plan as presented with the addition of a reference to the railroad
crossing study.
The motion was adopted unanimously.
d. Annual Report – Action – Paul Sizemore
Sizemore stated an annual report is required to be submitted to Council and
discussed the draft he provided.
York suggested including mention of the board liaisons and members' attendance at
super issue meetings.
PARKS AND RECREATION ADVISORY BOARD
TYPE OF MEETING – REGULAR
01/23/2020 – MINUTES Page 2
• E-bike Pilot Program Wrap-Up – Tessa Greegor
• In 2017 the State adopted a new law where e-bikes can be used on
paved trails. In April 2019 City Council approved an e-bike pilot program
to be conducted on the City’s paved trails. The purpose of this program is
to asses public opinion for use of Class 1 and Class 2 e-bikes on these
trails. Class 1 is a pedal assisted e-bike, while class 2 is a throttle
assisted e-bike, both have a maximum speed of 20 mph. Surveys were
taken along the trails and online, over 1,100 responses were recorded
with the majority in favor of class 1 and a higher opposition of class 2 e-
bikes. Staff is now seeking a recommendation from the Board before the
results of the pilot program are brought before Council in March.
Staff is recommending allowing Class 1 and Class 2 e-bikes on paved
trails, while continuing education and monitoring of safety concerns to
determine if additional regulations or enforcements are needed. As well
as continuing discussions around the future vision and management of
the trail system during parks and trails updates.
Board: What months was the survey conducted?
Staff: Some done in April, then throughout the summer, beginning in July.
Board: Are helmets required?
Staff: No, not on e-bikes or traditional bikes.
Board: Are there any regulations on a minimum age?
Staff: There are not, only for Class 3 e-bikes which have a top speed of
28 mph, but those bikes are not part of this program.
Board: What did the police think about possible age restrictions for those
riding e-bikes?
Staff: They were not supportive of age restrictions as they would be too
difficult to enforce.
Board: When would this officially start?
Staff: Ideally May 1
st
, right after the pilot ends.
Sam makes a motion to support the staff recommendation, Mary seconds.
The Board would like to add to the recommendation that the trails
continue to be monitored after the pilot program concludes and Council
approves, especially during the summer months.
Motion passes 5-0
ATTACHMENT 6
BICYCLE ADVISORY COMMITTEE
TYPE OF MEETING – REGULAR
1/27/2020 – MINUTES Page 2
There were no changes to the published agenda.
4. CITIZEN PARTICIPATION
None.
5. APPROVAL OF MINUTES – DECEMBER 2019
Gavaldon made a motion, seconded by Cranmer, to adopt the December 2019 minutes
as amended to change the spelling of Marcia Patton-Mallory's name. The motion was
adopted unanimously.
6. UNFINISHED BUSINESS
7. NEW BUSINESS
a. Bird E-Scooter Pilot Program Update – Amanda Mansfield & Michael Einstein
Mansfield discussed the process that led to E-scooter regulations and the request
for proposal process that led to Bird being the selected vendor. She detailed the
roles of various City departments and staff in the program to remove scooters from
improper locations and write citations for regulation violations. She stated there
have been no reports of serious accidents or vandalism to this point.
Michael Einstein, Bird, discussed the list of key stakeholders and the Bird Access
program which aims to address equity. He also discussed how GPS data is utilized
and can help aid in bicycle infrastructure.
Mansfield discussed ridership data provided by Bird and stated she is working with
the company to make that data publicly available. She noted there are less than the
total of 500 scooters in operation currently due to the weather and stated Bird 2 will
be forthcoming in the spring. Bird 2 will have enhanced safety features and the
ability to read GPS more quickly which will enable quicker scooter response to
geofencing.
Mr. Einstein discussed Bird's efforts at ensuring environmental benefits of its
service.
Mansfield discussed the interaction of the E-scooter program with the bike share
program.
Gavaldon discussed a 9 News report on E-scooters and expressed disappointment
the ridership data has not been available to the public from the beginning.
Mansfield replied E-scooter companies in general are concerned about other
companies seeing their data. Gavaldon argued the data belongs to the city.
Patton-Mallory asked if any demographic data is collected on riders. Mr. Einstein
replied that is not currently being collected, but there is a possibility of including that
ATTACHMENT 7
BICYCLE ADVISORY COMMITTEE
TYPE OF MEETING – REGULAR
1/27/2020 – MINUTES Page 3
in future surveys.
Cranmer asked about mode shift in other cities that have been using the program
longer. Mr. Einstein replied Portland data showed 74% of E-scooter riders had
never used the city's bike share program and 42% never interact with bicycles at all.
He stated all of Bird's surveys across the U.S. show about 1/3 of riders indicate their
most recent trip replaced either a personal vehicle, an Uber or Lyft vehicle ride,
transit, or taxi.
Cranmer asked about the average trip length. Mansfield replied it is 0.4 miles in
Fort Collins.
Gavaldon suggested some of the assumptions related to a reduction in vehicle
miles travelled may not be accurate as those miles may have been otherwise taken
on public transit.
Gavaldon asked if E-scooters are allowed to be brought on buses. Mansfield
replied foldable scooters are allowed, but Bird scooters are not foldable.
Miller requested information from future data regarding how to address reductions in
bike share usage and expressed concern about that program needing to be
subsequently subsidized.
Patton-Mallory asked how the program will work with large events such as New
West Fest in terms of scooter distribution. Mr. Einstein replied Bird does work with
large-scale special events in all markets and utilizes temporary geofencing and
push notification announcements for special events.
Mansfield discussed a press event that will occur the last week of April.
Mr. Einstein discussed Bird's hybrid model of gig economy chargers and a full in-
house service center team.
b. E-Bike Paved Trail Pilot Program – Action Item – Tessa Greegor
Greegor stated staff is seeking a recommendation from the Committee as to the
next steps for the E-bike paved trail pilot program. She stated the staff
recommendation, which was not unanimous among the staff team, is to recommend
allowing class 1 and class 2 E-bikes on paved trails following the completion of the
pilot program at the end of April.
Greegor reviewed the process that led to the pilot program and discussed the
recommendations of Boards and Commissions to this point. She stated staff is
currently slated to go before Council with a recommendation on March 17th
.
Greegor reviewed E-bike ridership data and stated there is a slight uptick in E-bike
use and bike shops are predicting additional steady growth.
Gavaldon asked if E-bikes are replacing regular bikes. Greegor replied she does
BICYCLE ADVISORY COMMITTEE
TYPE OF MEETING – REGULAR
1/27/2020 – MINUTES Page 4
not have that exact number but there was a study done on North American E-bike
users and she can follow up with that information.
Dangerfield asked if Pace has an option to provide E-bike rentals. Greegor replied
they are testing them in certain markets, and she will provide that data.
Greegor stated staff has not heard about crashes involving E-bikes on the paved
trails, though one person did report a crash involving an E-bike on the survey. She
discussed speed observations and other survey results.
Sizemore noted Nancy Nichols, Safe Routes to Schools Coordinator, could not be
present at this meeting, but is not in favor of allowing E-bikes on paved trails.
Members discussed negative interactions with illegal electric bikes.
Cranmer asked why E-scooters and E-skateboards are not allowed on the trail.
Greegor replied that was outside the scope of this pilot as it was originally discussed
as a result of changing state definitions of E-bikes.
Members discussed potential forthcoming modes and issues.
Miller made a motion, seconded by Boardmember, to support the staff
recommendation to allow class 1 and 2 E-bikes on all paved trails.
Patton-Mallory commented on the fact that those with disabilities can already ride E-
bikes on paved trails and expressed reservations about the number of electric
devices that will be available and wanting to use paved trails in the future. She also
expressed concern about the use of E-bikes on certain narrower trails, such as
Spring Creek Trail.
Greegor stated she believes most jurisdictions in Colorado are allowing Class 1 and
2 E-bikes on paved trails.
The vote on the motion was as follows: Yeas: Miller, Gavaldon, Hunt, Dangerfield,
McDonnell, and Buckley. Nays: Cranmer, Patton-Mallory, and Krause. Abstain:
Webber
THE MOTION CARRIED.
c. Committee Elections – All
Gavaldon made a motion, seconded by Hunt, to retain Buckley as Chair and Patton-
Mallory as Vice Chair. Buckley and Patton-Mallory accepted. The motion was
adopted unanimously.
8. BOARD MEMBER REPORTS
Chair Buckley reported the Bike Co-op recently completed its annual summary and it
DATE: 2/18/2020
TO: Mayor Troxell and Councilmembers
FROM: Youth Advisory Board of Fort Collins
RE: Letter of Support for the E-Bike Implementation
The purpose of this letter is to express the Youth Advisory Board of Fort Collins’ support for the
implementation of e-bikes with provisions outlined below.
The City of Fort Collins Youth Advisory Board supports the proposed policy allowing
class one and two e-bikes on paved city trails before the sunset of the e-bike pilot program with
one caveat. This is that it eventually be adjusted to permit higher class electric bikes with
regulating software on paved trails within the city maintaining the safety of our citizens. The
current policy allows for only class one and two e-bikes to be permitted on paved trails.
Class 1 e-bikes are defined as pedal-assist only bikes, with no throttle, and have a
maximum assisted speed of 20 mph. Class 2 e-bikes also have a maximum speed of 20 mph but
are throttle-assisted. The Youth Advisory Board would like to see permittance of Class 3 e-bikes,
bikes with pedal assist and/or a throttle regulated up to 28 miles an hour, if they can be capped
meeting at 20 mph meeting the requirements for a Class 2 e-bike.
The current protocol does not allow programmable class threes because it believes that
they are out of the reasonable price range for general citizens, however the youth advisory board
believes that they will quickly become available to our citizens and would like for this protocol
to be quickly adapted.
Sincerely,
The Fort Collins Youth Advisory Board
ATTACHMENT 8
4. ELECTIONS
LINDSAY:
- We should wait for Barry to move forward with that topic.
- Done on an annual basis.
- Any nominations for chair? – Danielle
- The term expires on an annual basis. – Lindsay
- Danielle is nominated, Drew seconded. Unanimously approved.
- Vice Chair – Kevin is nominated. – Barry, Danielle seconded, unanimously approved.
5. APPROVAL OF MINUTES
o January 2020 Minutes Review –
Danielle, any amendments to the minutes? Two minor grammar issues need to be
corrected.
Motion to approve the minutes, Drew seconded. The minutes are approved
unanimously, as amended.
6. NEW BUSINESS
a. E-Bike Pilot Study –Tessa Greegor, FC Bikes Program Manager: 6:10 – 6:43
p.m.
TESSA – Presenter
Update/discussion – referencing slide deck on the e-Bike pilot program.
Tessa is looking for feedback and comments from the board on the e-bike pilot program,
with the understanding that there may not be a quorum this evening, and that the advisory
board may not be able to make a recommendation.
The preliminary staff recommendations from the pilot program are also included in the
presentation slide deck.
Based on the information collected over the last nine months, the recommendation that will
be presented to City Council in April is to allow class1 and class 2 e-bikes on the paved bike
trails following the pilot program.
Points from the Pilot Program so far:
- No major issues from the public regarding e-Bikes on the trail.
- Recognize the need for ongoing monitoring to address any additional concerns, such
as safety, as they come up.
- Senior advisory board voted for class 1 e-bikes, with recommendation that e-bike
riders are insured.
- Very few reported conflicts on the bike trail.
NRAB COMMENTS – e-Bikes
BARRY:
- Appreciated the pilot review and had the following comments:
Hesitant to draw any conclusion on the results based on the current low use
of e-Bikes. Increased use could lead to increased issues.
NATURAL RESOURCES ADVISORY BOARD
FEBRUARY 19, 2020 ATTACHMENT 9
DRAFT NOT YET APPROVED 02/19/2020 – MINUTES
Page 3
Monitoring by ‘Ranger’ doesn’t seem to figure into the monitoring of e-Bike
speeds/use, and misuse; inadequate enforcement.
SAMMY:
- How easy is it for the bikes to control their speed, and get to a full stop? This could
play into the severity of accidents or accidents in general.
- Anything with a ‘throttle’ has the potential to be dangerous.
- Survey shows varied feedback on age restrictions. This requirement/guideline
should be defined.
- In favor of Class 1 now and Class 2 at a later date.
DANIELLE:
- Many of these e-bikes can shift between pedal only and pedal assist – could the
Class 2 bikes be restricted to use pedal assist only.
TESSA:
- It’s an option however this would be hard to enforce.
BARRY:
- As with any motorized off-road vehicle, ATV’s for example, they can be abused. We
could also inadvertently allow a low mph vehicle and not have included the
constraints for any e-Bike increase of speed in future models.
- There is not enough law enforcement to constrain the users and the vehicle types.
ELIZABETH:
How would you know how old the user was and what kind of insurance would e-bike riders
use?
- Agree that the board should limit the e-Bikes to Class 1 only.
TESSA:
It’s possible homeowner’s/renter’s insurance could provide some coverage; perhaps auto
insurance (if automobile is involved).
DANIELLE:
- Determined there is a quorum. Decision was made to vote to either support class 1
and 2, or an alternate recommendation for class 1 only?
BARRY
- If, Bob and Kevin’s opinion were similar to his, they would support the adoption of
class 1 and rejection of class 2.
DANIELLE
- Interested in allowing class 2 with the hope that people would use alternative
transportation more often. Concern about constraints on e-Bikes discouraging their
purchase.
- Enforcement of either class use will be difficult regardless. We should choose the
option that is the most defensible.
- Would support allowing class 2 e-bikes in pedal assist only with some type of
amendment.
DRAFT NOT YET APPROVED 02/19/2020 – MINUTES
Page 4
BARRY
- How would class 2 in pedal assist be enforced? It couldn’t be. The current use of
motorized vehicles in the back country are aggressive; high-powered, loud and
deleterious to the wildlife and natural areas.
- Very concerned about abuse; opposed to class 2.
- Not necessarily used as an alternative way to get to work – potential to compromise
the original intent of the bike trail system.
- Small number of people who do the most damage.
DREW
- Concern for people who truly need the full assist of the class 2 bike.
ELIZABETH
- Any way to distinguish the class 2 bikes from the class 1 to show compliance?
- The growth opportunities for the e-bike use could increase.
- Also see the progress of more aggressive vehicles used off road.
- In favor of class 1.
TESSA:
- Class 2 e-Bikes would be allowed for people with disabilities under a different policy
and would be exempt regardless.
- The e-Bikes are required to be labeled their class and top speed. This is not
necessarily immediately recognizable.
DANIELLE:
- Does anyone have a motion to support the alternate to support Class 1?
BARRY:
- Makes the motion; In favor of Class 1 not in favor of Class 2.
- Overall, he is uncertain of allowing any motorized vehicles on the trail system.
ELIZABETH:
- Perhaps the board could revisit as the use of e-Bikes increases and changes over
time.
- Second – Count of four, Danielle abstains motion passes.
DANIELLE:
- Let’s move ahead to vote for class 1 only.
- Barry in favor, Danielle abstains the rest are in favor.
Motion
Motion passes to allow Class 1 e-Bikes.
b. Water Supply Vulnerability Study –Meagan Smith; 6:44 – 7:25 p.m.
Meagan Smith; Engineer Water Resources; Utilities, Donnie Dustin; Water Engineering Sr.
Manager
Presenter Discussion – please see slides for overview and context.
PROPOSED MOTIONS TO AMEND ORDINANCES TO CLASS ONE ELECTRICAL
ASSISTED BICYCLES ONLY
4/7/2020
*Should City Council determine that they only wish to permit Class 1 Electrical Assisted
Bicycles – please use the following Motions (one for each of the two ordinances):
1. Ordinance No. 058, 2020 (City Code):
I hereby move to amend the Ordinance to allow only Class 1 Electrical Assisted Bicycles on
the City’s paved trails, by in Section 2 of the Ordinance deleting the words “and Class 2”
from subsection (18)a, on page 2 of the Ordinance.
2. Ordinance No. 059, 2020 (Traffic Code):
I hereby move to amend the Ordinance to allow only Class 1 Electrical Assisted Bicycles on
the City’s paved trails, by:
~ in Section 2 of the Ordinance adding “Class 2 and” before “Class 3” in Traffic Code
Section 2101(2), and
~in Section 3 of the Ordinance deleting the words “and Class 2” from the first sentence of
Traffic Code Section 2106(3) and adding “Class 2 and” before “Class 3” in the second
sentence of that subsection.
ATTACHMENT 10
April 7, 2020
Code Amendments to Allow E-bikes on Paved Trails
City Council
ATTACHMENT 11
Council Action Requested
Ordinance 1: Approval of City Code changes
• Additions to Section 23-193 and 23-203 to allow Class 1 and
Class 2 electrical assisted bicycles on paved designated trails
within natural areas and recreation areas unless prohibited by
signs.
2
Council Action Requested
Ordinance 2: Approval of Traffic Code changes
• Updating Section 2106 to allow Class 1 and Class 2 electrical
assisted bicycles on paved designated trails except where
prohibited by the City Code or posted signs.
• Updating Section 2101 to prohibit Class 3 electrical assisted bikes
path or on a recreational trail
• Updating Section 2110 to include the term “electrical assisted
bicycle” in the list of possible CDOT regulated devices on state
highways.
3
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
4
E-bike: a bicycle with two or three wheels, fully operable pedals,
and an electric motor.
Background
• 2017: State law defines e-bikes as bicycles,
allows Class 1 and Class 2 e-bikes on trails
unless restricted by local jurisdiction
• 2018-2019: City Boards recommend Pilot
Program to allow e-bikes on paved trails
• April 2019: City Council approves one-year
E-bike Paved Trail Pilot Program
5
Photo Source: Pedego
Pilot Program: Overview
• May 1, 2019 – April 30, 2020
• Class 1 and Class 2 e-bikes,
paved trails
• Education and evaluation:
• Public perceptions
• Safety, trail experience
• Bicycle utilization
• Trail laws and etiquette
Pilot Program: Partners
Internal:
• Natural Areas
• Park Planning & Development
•Parks
•FC Moves
• Police Services
External:
• Bicycle organizations
• Bicycle retailers
• Colorado State University
• Colorado School of Public
Health
• Regional partners
7
Pilot Program: Education
Trail etiquette, pilot program information:
• Trail signage
• Trail “pop-ups”
• Major events
• Bell giveaways
• Handouts
• Website, social media, press release
• E-bike demos
• Partner outreach
8
Pilot Program: Evaluation
Assessing safety, use, and public perspectives:
• Surveys (trail, event, online)
• Speed assessments
• Observations & counts
• Reported conflicts
• General comments
• Feedback from partners, departments
1,100+ responses to surveys
9
Support for allowing E-bikes on Paved Trails
Input from surveys conducted on trails, online and at events: N=1,174 10
Oppose,
173, 15%
Neutral,
229, 19%
Support,
618, 53%
Support
only on
certain
trails,
107, 9%
Not Sure,
47, 4%
CLASS 1 E-BIKES
Oppose,
332, 28%
Neutral,
244, 21%
Support,
421, 36%
Support
only on
certain
trails, 92,
8%
Not
Sure, 77,
7%
CLASS 2 E-BIKES
Pilot Program: Comment Themes
Support
• Supports those needing aid
• Same as standard bike / no
new issues
• Provides alternative
transportation
Opposed
• Speed concerns
• Motorized vehicle
• Safety concerns
• Disrupt trail experience
11
Pilot Program: E-bike Use
Trail Counts: 1.15% of bicyclists on
e-bikes
Bike shops: increased sales, mostly
Class 1 e-bikes
Surveys (e-bike owners):
• Majority age 50+, followed by 30-
49
• Report bicycling more, replacing
car trips
12
Pilot Program: Speed
All bicyclists observed: 1,157
• 11.93 mph average speed
• Range: 1 – 24 mph
E-bikes observed: 16
• 15.63 mph average speed
• Range: 10 – 23 mph
13
Pilot Program: Safety
Incident Reports:
• No safety incidents or e-bike crashes
reported by Rangers or Police
• Some negative experiences reported
through Access or email
• Trail survey respondents reported minimal
conflicts; high overall perception of trail
safety
14
Pilot Program: Trail Experience
Trail Surveys:
• Nearly all respondents rated quality of experience a 4 or 5 (scale 1-5)
• Very few respondents rated encounters with e-bikes negative
• Most respondents never or rarely saw e-bikers behaving unsafely /
discourteously
15
E-bike Literature Review
16
• Access
• Encouragement
• Health
• Safety
• Concerns
• Impacts
• Other jurisdictions
Boards & Commissions
• Class 1 and Class 2 e-bikes:
• Transportation Board
• Parks & Recreation Board
• Bicycle Advisory
Committee
• Youth Advisory Board
• Class 1 e-bikes:
• Senior Advisory Board
• Land Conservation &
Stewardship Board
• Natural Resources
Advisory Board
17
• Commission on Disability: No action taken
• Air Quality Advisory Board (meeting canceled)
Class 1 & Class 2
• Same power and top speed (20
mph)
• Class 2 – throttle and pedal-assist
• Difficult to distinguish
• Most e-bikes sold in the US are
Class 1 and Class 3
• Colorado and neighboring
jurisdictions allow both
18
Image: 303cycling.com
Concerns and Challenges
• Other e-devices
• Enforcement
• Future trail system
• Trail safety
• Vulnerable populations
19
Staff Recommendations
Allow Class 1 and Class 2 e-bikes on paved trails
Conduct ongoing trail monitoring and assessments
Continue trail education including installation of permanent signs
Utilize plan updates to address broader trail management questions
20
Council Action Requested
Ordinance 1: Approval of City Code changes
• Additions to Section 23-193 and 23-203 to allow Class 1 and
Class 2 electrical assisted bicycles on paved designated trails
within natural areas and recreation areas unless prohibited by
signs.
21
Council Action Requested
Ordinance 2: Approval of Traffic Code changes
• Updating Section 2106 to allow Class 1 and Class 2 electrical
assisted bicycles on paved designated trails except where
prohibited by the City Code or posted signs.
• Updating Section 2101 to prohibit Class 3 electrical assisted bikes
path or on a recreational trail
• Updating Section 2110 to include the term “electrical assisted
bicycle” in the list of possible CDOT regulated devices on state
highways.
22
-1-
ORDINANCE NO. 058, 2020
OF THE COUNCIL OF THE CITY OF FORT COLLINS
AMENDING CHAPTER 23 OF THE CODE OF THE
CITY OF FORT COLLINS TO ALLOW AND REGULATE
THE USE OF ELECTRICAL ASSISTED BICYCLES
ON THE CITY’S PAVED TRAILS
WHEREAS, on April 16, 2019, the City Council approved Ordinance No. 045, 2019,
implementing a pilot program to allow electrical assisted bicycles, as that term is defined in the
Fort Collins Traffic Code, to operate on paved trails in natural areas and recreation areas within
the City for a one-year trial period; and
WHEREAS, pursuant to extensive staff outreach, there is public support for allowing the
ongoing use of certain electrical assisted bicycles on City trails; and
WHEREAS, the City needs to balance the use of electrical assisted bicycles on trails with
current use of such trails by bicycles and pedestrians, as well as maintain the City’s interest in
conservation and stewardship of its natural areas and recreation spaces; and
WHEREAS, City staff will continue to conduct trail user education to promote safe and
legal use of the trail by electrical assisted bicycle users; and
WHEREAS, in order to balance these interests, City staff is recommending amending
Chapter 23 of the City Code to expressly permit use of Class 1 and Class 2 electrical assisted
bicycles on paved trails in City natural areas and recreation areas; and
WHEREAS, City staff will continue to monitor the use and impact of electrical assisted
bicycles on trails within the City; and
WHEREAS, the City Council finds that amending the City Code as described herein is in
the best interests of the City and its citizens.
NOW, THEREFORE, BE IT ORDAINED BY THE COUNCIL OF THE CITY OF
FORT COLLINS as follows:
Section 1. That the City Council hereby makes and adopts the determinations and
findings contained in the recitals set forth above.
Section 2. That Section 23-193(d)(18) of the Code of the City of Fort Collins is
hereby amended to read as follows:
Sec. 23-193. Prohibited acts; permits.
. . .
(d) Except as authorized by a permit obtained for such use from the Service Area, it
shall be unlawful to:
-2-
. . .
(18) Operate or park a motor vehicle or other motorized means of conveyance
anywhere in a natural area other than on established roadways and in designated
parking areas; provided, however, that, with the following exceptions:
a. Class 1 and Class 2 electrical assisted bicycles, as defined in
Section 2002(12) of the Fort Collins Traffic Code, are allowed within
natural areas, on paved, designated trails only, unless prohibited by signs;
b. 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
c. 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 3. That Section 23-203(a)(1) of the Code of the City of Fort Collins is hereby
amended to read as follows:
Sec. 23-203. - Prohibited acts; permits.
(a) It shall be unlawful to:
(1) Operate or park a motor vehicle or other motorized means of conveyance
anywhere in a recreation area other than on established roadways and in
designated parking areas; provided, however, that, with the following
exceptions:
a. Class 1 and Class 2 electrical assisted bicycles, as defined in
Section 2002(12) of the Fort Collins Traffic Code, are allowed within
recreation areas, on paved, designated trails only, unless prohibited by
signs;
b. 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
c. 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.
-3-
Introduced, considered favorably on first reading, and ordered published this 7th day of
April, A.D. 2020, and to be presented for final passage on the 21st day of April, A.D. 2020.
__________________________________
Mayor
ATTEST:
_____________________________
City Clerk
Passed and adopted on final reading on this 21st day of April, A.D. 2020.
__________________________________
Mayor
ATTEST:
_____________________________
City Clerk
-1-
ORDINANCE NO. 059, 2020
OF THE COUNCIL OF THE CITY OF FORT COLLINS
AMENDING THE FORT COLLINS TRAFFIC CODE
TO ALLOW AND REGULATE THE USE OF
ELECTRICAL ASSISTED BICYCLES
ON THE CITY’S PAVED TRAILS
WHEREAS, on April 16, 2019, the City Council approved Ordinance No. 045, 2019,
implementing a pilot program to allow electrical assisted bicycles, as that term is defined in the
Fort Collins Traffic Code, to operate on paved trails in natural areas and recreation areas within
the City for a one-year trial period; and
WHEREAS, pursuant to extensive staff outreach, there is public support for allowing the
ongoing use of certain electrical assisted bicycles on City trails; and
WHEREAS, the City needs to balance the use of electrical assisted bicycles on trails with
current use of such trails by bicycles and pedestrians, as well as maintain the City’s interest in
conservation and stewardship of its natural areas and recreation spaces; and
WHEREAS, City staff will continue to conduct trail user education to promote safe and
legal use of the trail by electrical assisted bicycle users; and
WHEREAS, in order to balance these interests, City staff is recommending the following
changes to the Fort Collins Traffic Code be made to allow Class 1 and Class 2 electrical assisted
bicycles on paved trails within the City:
• Allow for the prohibition of electrical assisted bicycles by the City Engineer or the
Colorado Department of Transportation, where trails have been established on the right-
of-way or parallel to and within one-fourth (1/4) mile of the right-of-way of heavily
traveled streets and highways; and
• Permit Class 1 and Class 2 electrical assisted bicycles on all paved bike or pedestrian
paths and paved recreational trails within the City, except where prohibited by the City
Code or posted signs; and
WHEREAS, City staff will continue to monitor the use and impact of electrical assisted
bicycles on trails within the City; and
WHEREAS, the City Council finds that amending the Fort Collins Traffic Code as
described herein is in the best interests of the City and its citizens.
NOW, THEREFORE, BE IT ORDAINED BY THE COUNCIL OF THE CITY OF
FORT COLLINS as follows:
Section 1. That the City Council hereby makes and adopts the determinations and
findings contained in the recitals set forth above.
-2-
Section 2. That Section 2101(2) of the Fort Collins Traffic Code is hereby amended
to read as follows:
2101. - General provisions.
. . .
(2) All persons are prohibited from riding electrical assisted bicycles while the motor
is engaged, or Class 3 electrical assisted bicycles and riding or an electric scooter,
on a bike or pedestrian path or on a recreational trail unless otherwise authorized
by the City Code.
Section 3. That Section 2106(3) of the Fort Collins Traffic Code is hereby amended
to read as follows:
2106. - Sidewalks and trails.
. . .
(3) Riders of Class 1 and Class 2 electrical assisted bicycles may use paved bike or
pedestrian paths and paved recreational trails except where prohibited by the City
Code or posted signs. The rider of an Class 3 electrical assisted bicycle shall not
use the electrical motor on a bike or pedestrian path or on a recreational trail
unless otherwise authorized by the City Code.
Section 4. That Part 20 Section 2110(3) of the Fort Collins Traffic Code is hereby
amended to read as follows:
2110. - Regulatory.
. . .
(3) Where suitable bike paths, horseback trails or other trails have been established
on the right-of-way or parallel to and within one-fourth (¼) mile of the right-of-
way of heavily traveled streets and highways, the Colorado Department of
Transportation may, subject to the provisions of Section 43-2-135, C.R.S., by
resolution or order, and the City Traffic Engineer may, where suitable bike paths,
horseback trails or other trails have been established on the right-of-way or
parallel to it within four hundred fifty (450) feet of the right-of-way of heavily
traveled streets, by ordinance, determine and designate, upon the basis of an
engineering and traffic investigation, those heavily traveled streets and highways
upon which shall be prohibited any bicycle, electrical assisted bicycle, electric
scooter, animal rider, animal-drawn conveyance or other class or kind of
nonmotorized traffic which is found to be incompatible with the normal and safe
movement of traffic, and, upon such a determination, the Colorado Department of
Transportation or the City shall erect appropriate official signs giving notice
thereof; except that with respect to controlled access highways, the provisions of
Section 42-4-1010(3), C.R.S., shall apply. When such official signs are so erected,
no person shall violate any of the instructions contained thereon.
-3-
Introduced, considered favorably on first reading, and ordered published this 7th day of
April, A.D. 2020, and to be presented for final passage on the 21st day of April, A.D. 2020.
__________________________________
Mayor
ATTEST:
_______________________________
City Clerk
Passed and adopted on final reading on the 21st day of April, A.D. 2020.
__________________________________
Mayor
ATTEST:
_______________________________
City Clerk
Park
10.17 24
Spring Creek Trail west of Mason 13.12 104
Spring Creek Trail west of Taft Hill Rd 11.74 50
11
245, 22%
138, 12%
737, 66%
HAVE YOU RIDDEN AN E-BIKE?
YES YES, I OWN AN EBIKE No
N = 1,120 (Trail surveys, Online survey)
245, 2
737, 66%
HAVE YOU RIDDEN AN E-B
YES YES, I OWN AN EBIKE
N = 1,120 (Trail surveys, Online survey)
Graph 9: E-bike ownership and experience
35
13
16
145
155
41
0 - NEVER
1 - RARELY
2 - SOMETIMES
3 - OFTEN
4 - ALMOST ALWAYS
HOW OFTEN DO YOU ENCOUNTER E-BIKE USERS ON FORT COLLINS
PAVED TRAILS?
April Trail Survey Fall Trail Survey Online Survey
N = 778 (data from April & Fall Trail Surveys and Online Survey)
Graph 7: How often do you encounter e-bike users on Fort Collins Paved Trails?
4
5 (Excellent)
TRAIL EXPERIENCE
Fall Trail Surveys (N=107) April Trail Surveys (N=329)
N = 436 (data April and Fall Trail Surveys)
Graph 5: Rating overall quality of experience using trails.
9%
61%
6%
1%
6%
28%
51%
12%
3%
18%
21%
44%
10%
6%
0%
7%
75%
17%
2%
OPPOSE NEUTRAL SUPPORT SUPPORT ONLY ON
CERTAIN TRAILS
NOT SURE
LEVEL OF SUPPORT FOR CLASS 1 E-BIKES BY SURVEY TYPE
April Trail Survey Open Streets Event Online Survey
Summer Trail Survey Fall Trail Survey Winter Bike to Work Day Event
N = 1,174 (data from trail, online, and event surveys)
26%
32%
24%
5%
13%
18%
19%
45%
14%
4%
40%
10%
45%
3%
3%
19%
26%
38%
12%
6%
36%
25%
26%
7%
7%
11%
9%
41%
36%
4%
OPPOSE NEUTRAL SUPPORT SUPPORT ONLY ON
CERTAIN TRAILS
NOT SURE
LEVEL OF SUPPORT FOR CLASS 2 E-BIKES BY SURVEY TYPE
April Trail Survey Open Streets Event Online Survey
Summer Trail Survey Fall Trail Survey Winter Bike to Work Day Event
N = 1,174 (data from trail, online, and event surveys)
Graphs 3 & 4: Position on allowing e-bikes on paved trails by survey
April Trail Survey 163 21 139 2 1 7
163
21
139
1
18 79
31
185
2
MODE DURING TRAIL SURVEY
April Trail Survey Fall Trail Survey Summer Trail Survey
N = 676 (data from surveys conducted on the trails)
Graph 1: Mode during trail survey
and that ceases to provide assistance when the bicycle
reaches a speed of twenty-eight (28) miles per hour. Class
3 e-bikes include age restrictions and require the use of
helmets for people under the age of 18.
Table 2: E-bike regulations (paved trails), snapshot of Colorado
jurisdictions
Colorado Class 1 and Class 2 e-bikes allowed
Colorado State
Parks
Class 1 and Class 2 e-bikes allowed
Larimer County Class 1 and Class 2 allowed
Boulder County Class 1 and Class 2 allowed
Jefferson County Class 1 and Class 2 allowed
City & County of
Denver
Class 1 allowed during 2019 temporary rule
Loveland Class 1 and Class 2 allowed
Boulder Class 1 and Class 2 allowed
Greeley Not currently allowed, in process of updating
City Code to allow
Grand Junction Class 1 and Class 2 allowed
Colorado Springs Class 1 allowed on urban trails
Durango Class 1 and Class 2 allowed
3