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Literature Review of Bicycle and E-Bike Research, Policies & Management

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Literature Review of Bicycle and E-Bike Research, Policies & Management Literature Review Recreation Conflicts Focused on Emerging E-bike Technology December 19, 2019 Tina Nielsen Sadie Mae Palmatier Abraham Proffitt Acknowledgments E-bikes are still a nascent technology, and the research surrounding their use and acceptance within the recreation space is minimal. However, with the careful and constructive guidance of our consultants, the report outline morphed into chapters and, eventually, into a comprehensive document. We are deeply indebted to Mary Ann Bonnell, Morgan Lommele, and Stacey Schulte for guiding our thinking and research process and for supplementing our findings with resources and other support. We would like to express our deep appreciation to Lisa Goncalo, Tessa Greegor, Jennifer Alsmstead, and Rick Bachand for their careful and thoughtful reviews. Your gracious offer of time and knowledge was invaluable to our work. We also wish to acknowledge the help of Kacey French, John Stokes, Alex Dean, June Stoltman, and Steve Gibson for their consideration and continued interest in the process. Thanks are also due to colleagues at the Boulder County Parks & Open Space and Boulder County Transportation Departments, who offered their expertise at crucial moments in this process. We would like to offer our special thanks to Bevin Carithers, Pascale Fried, Al Hardy, Eric Lane, Tonya Luebbert, Michelle Marotti, Jeffrey Moline, Alex Phillips, and Marni Ratzel. None of this work would have been possible without the generous financial support from the City of Boulder, City of Fort Collins, and Larimer County. Reviewers: Lisa Goncalo, Recreation Management Coordinator, City of Boulder Open Space and Mountain Parks Kacey French, Senior Planner, City of Boulder Open Space and Mountain Parks Tessa Greegor, Active Modes Manager, City of Fort Collins Jennifer Almstead, Fund Development & Projects Specialist, Larimer County Natural Resources Rick Bachand, Environmental Program Manager, City of Fort Collins Natural Areas Department Stacey Schulte, Senior Instructor & Associate Director of Undergraduate Education and Curriculum, Department of Environmental Design at the University of Colorado, Boulder Morgan Lommele, State and Local Policy Director, People for Bikes John Stokes, Natural Areas Department Director, City of Fort Collins Trace Baker, Boulder County Parks & Open Space Advisory Committee Member Consultants: Mary Ann Bonnell, Visitor Services Management at Jefferson County Open Space Morgan Lommele, State and Local Policy Director, People for Bikes June Stoltman, Recumbent Trike Store Alex Dean, Natural Resource, Trails, and Recreation Manager, Colorado Parks & Wildlife Steve Gibson, Red Mountain District Manager/Lieutenant, Larimer County Natural Resources i Table of Contents Acknowledgements .......................................................................................................................... i Executive Summary .........................................................................................................................1 Chapter 1: Introduction ....................................................................................................................3 Chapter 2: Theoretical Frameworks of Recreational Conflict .........................................................6 Table 2.1: Studies on Recreation Conflict ....................................................................................... 7 Table 2.2: Propositions of Conflict ................................................................................................ 10 Figure 2.1: Continuum of Specialization Behavior ............................................................13 Chapter 3: Cultural Influences on Recreation ................................................................................18 Table 3.1: E-bike Market Share in Several European Countries ................................................... 24 Chapter 4: Emerging Technology and Redefining Outdoor Recreation ........................................ 29 Table 4.1: Decibel Scale ................................................................................................................ 32 Chapter 5: Costs and Benefits of E-bikes ......................................................................................38 Figure 5.1: Barriers to cycling and strategies employed to address them ...................................... 44 Chapter 6: Recreation Management ...............................................................................................55 Chapter 7: E-bike Regulations on Federal, State and Local Lands ................................................64 Table 7.1: E-bike allowance by trail type in several jurisdictions within Colorado ...................... 69 Table 7.2: Landscape overview of trail demographics for Boulder County 2019 e-bike pilot project funding partners ............................................................................................... 71 Chapter 8: Conclusions ..................................................................................................................77 Works Cited ...................................................................................................................................80 ii Executive Summary As a rapidly evolving hybrid technology, e-bikes are challenging the notions of traditional, passive, non-motorized recreation. The goal of this literature review is to inform policy discussions and decisions for the quickly growing e-bike market in four of Colorado’s northern Front Range open space programs: Boulder County Parks & Open Space, City of Boulder Open Space and Mountain Parks, Larimer County Natural Resources Department, and City of Fort Collins. A 2018 nationwide study of nearly 1,800 new e-bike owners found that older adults and those with physical limitations use e-bikes mostly for fitness and recreation, whereas younger adults tend to use e-bikes more heavily for utilitarian purposes, such as replacing car trips for commuting, errands and hauling cargo. The electric-assist makes it possible for more people to ride a bicycle and generates more and longer trips. Many users feel safer riding an e-bike because of their increased confidence in getting through a wide intersection or navigating more challenging terrain. E-bikes offer positive outcomes for accessibility and inclusion, and many agencies allow them as “other power-driven mobility devices” (OPDMDs) under the Federal Americans with Disabilities Act (ADA) guidelines. Several studies have established positive health benefits of e- bike use, given that e-bikers ride more frequently and longer. E-bikes are particularly attractive to aging baby boomers. Safety, speed, crowding, and user conflict are common concerns related to bicycles generally, and these concerns are heightened for e-bikes. Recreation conflict literature suggests that most conflict follows an asymmetrical pattern, and research on e-bikes shows that experience informs perceptions. Several studies show that trail users unfamiliar with e-bikes express a preference to not share the trail with them, but the majority did not notice that they were sharing the trail with e-bikes. Similarly, once trail users were exposed to e-bikes, concerns about them decrease for many. Another negative in the recreation arena is a concern about technical abilities and riders on e-bikes exceeding their experience levels or needing rescue. Additionally, some recreational mountain bikers believe that e-bike riders should “earn” their ride. There is not much research on the impacts of e-bikes to physical trail conditions. The only study to date found that soil Executive Summary 1 displacement resulting from eMTBs was not significantly different from mountain bikes, and both kinds of bikes cause significantly less damage than dirt bikes. Ecologically, some evidence suggests that the impacts of e-bikes (erosion, noise pollution, effects on wildlife) are no different from conventional bikes, but e-bike batteries may exacerbate problems associated with battery production and disposal. On the positive side, although they emit more CO2 than conventional bikes, the potential emissions reduction from e- bikes could be significant if widely adopted and used for utilitarian purposes. Many Colorado jurisdictions have acted to allow some or all classes of e-bikes, including the City of Boulder (certain multi-modal trails), Durango, Jefferson County, Eagle County, Summit County Rec Path, and Rio Grande Trail. Many other local jurisdictions allow e-bikes by default under the August 2017 change in state law. Colorado Parks and Wildlife allow e-bikes wherever conventional bikes are allowed. In August 2019 the Department of the Interior (DOI) issued a Secretarial Order directing all DOI lands (National Park Service, National Wildlife Refuge, Bureau of Land Management, and Bureau of Reclamation) to exempt e-bikes from the definition of motorized vehicles and allow e-bikes on all paths where conventional bikes are allowed. The Order provided agencies 30 days to develop proposals guiding implementation. Executive Summary 2 Chapter 1 - Introduction Technology has the potential to act both within and outside the wilderness and outdoor recreation arenas. It cannot only shape our preferences with the natural world but also our expectations of how wilderness and recreation areas should be managed. As technology becomes more mainstream in outdoor spaces, general concerns over its integration fall into three categories: 1) the accelerating rate
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