SHARED MICROMOBILITY in the Region Considerations for local agency implementation and regional consistency

December 2020 Thanks to the Micromobility Work Group and stakeholders!

Melissa Balding Michael King Dan Raine Wady Burgos Jade Krueger Tom Reiff Lee Cryer Christina Lane Stephen Rijo Paul DesRocher Adam Lind Shane Roberts Beth Doliboa Emily Lindsey Toby Russell Kristina Evanoff Lily Lizarraga Michael Schwartz Austin Good Dan Maples Will Shepherd Sarah Grant Bryan Meyer Becky Smith William Haas Kent Moorman Ashley Summers Mark Heidt Rick Muriby Cate Townley Aaron Heumann Yelena Onnen John Voboril Mike Hughes Ben Ortiz Philip von Hake Daniel Hutton Ron Papsdorf Jenny Wallace Dave “DK” Kemp Cindy Patton Nicholas Williams Kristin Kenyon Alexandra Phillips Tom Worker-Braddock

Preparation of this product has been financed in part through grants from the U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration.

2 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION TABLE OF CONTENTS

Regional Micromobility Work Group...... 5

Shared micromobility in the Denver region...... 7

Regulatory environment...... 10

State law (HB19-1221)...... 10

Getting started and program administration...... 11

Plan support and local context...... 11

Stakeholder engagement...... 11

Pilot programs...... 13

Focus areas for collaboration...... 14

Coordination...... 14

Data and privacy...... 14

Operations ...... 17

Equipment and safety...... 19

Equity...... 20

Communications and community engagement...... 21

Next steps...... 22

Resources...... 22

General...... 22

Data and Privacy Specific...... 22

3 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION SHARED MICROMOBILITY parked in the public right of way. Typically, shared micromobility services are operated by private IN THE DENVER REGION companies, thus the importance of regulatory structure and regional considerations. Considerations for local agency implementation and Distinct from shared micromobility, personal regional consistency micromobility is considered part of the The Denver Regional Council of Governments’ regional transportation system, and devices regional transportation planning process is inherently like personally owned bikes and scooters are multimodal in scope and cross-jurisdictional considered as part of the regional transportation in practice. DRCOG staff were in the midst of planning process. These personal devices are developing the region’s first Active Transportation consistent with DRCOG planning outcomes Plan when dockless bike-share programs arrived in associated with things like mode shift, air the region and which were quickly followed by other quality improvements, and healthy and active types of shared micromobility. It became clear that communities. While not addressed in this regional collaboration was essential to a coordinated document, personal micromobility-related response and approach to shared micromobility. planning efforts are detailed in DRCOG’s Active 1 Over the past few years, with the addition of electric Transportation Plan. scooters and electric bikes to shared micromobility The Denver region has an opportunity to encourage fleets, state lawmakers and local policymakers have the use of micromobility devices (personal and been working to create a regulatory environment shared) to support many local, regional and statewide that both enhances safety and mobility while mobility-related goals. There are several planning simultaneously upholding civic goals. DRCOG staff documents and processes that provide context for support local, regional, state and federal agency addressing shared micromobility at the regional level, conversations and fosters collaboration with partner including DRCOG’s Metro Vision and Metro Vision agencies on shared micromobility. Regional Transportation Plan outcomes that support What is shared micromobility? things like mode shift toward commute modes Shared micromobility may mean different things, other than driving alone (including micromobility), depending on the context in which it’s used. For improved air quality, reduced congestion and the purpose of this document, shared micromobility increased safety. DRCOG’s Active Transportation refers to shared, low-speed, lightweight, small, Plan explored shared micromobility as an emerging human- and electric-powered transportation solutions trend and recommended convening local, regional like bikes and scooters. and statewide stakeholders to coordinate policy efforts for such devices and programs. Additionally, Sometimes also referred to as docked or dockless micromobility was addressed in a collaborative mobility, shared micromobility includes traditional, planning effort among DRCOG, the station-based bike sharing, dockless bikes and Department of Transportation, the Regional e-bikes, and devices like e-scooters. These devices Transportation District and the Denver Metro are typically available for short-term rental in Chamber of Commerce and detailed in the Mobility designated service areas. Shared micromobility Choice Blueprint. vehicles are most often deployed, used and

1 http://www.drcog.org/atp

4 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Regional Micromobility Work Group Short trips DRCOG established the regional Micromobility Work Data from shared micromobility programs Group in early 2019 to discuss shared micromobility indicates that it is particularly well suited to policy considerations and points of regional support short trips. In the Denver region, 19% of coordination, and to collaborate across jurisdictions all trips are less than 1 mile and 43% are less than throughout the Denver region. The work group is 3 miles.2 National data suggests average scooter made up of representatives from local governments, trips are about 1 mile.3 In the Denver region, 58% transportation management associations, and of shared micromobility trips were less than 1 regional, state and federal agency staff. Throughout mile and 73% were less than 1.5 miles.4 The City 2019, stakeholders met monthly. The group continues and County of Denver’s February 2019 survey to meet at least quarterly. The participants in the found that 33% of scooter trips replaced personal regional Micromobility Work Group have discussed vehicle and ride-hailing trips.5 considerations for local agency implementation of shared micromobility programs and identified Why is it important to work on shared principles for which regional consistency is important. micromobility in a regional context? DRCOG’s staff support local member governments Shared micromobility presents an opportunity to and their work to tailor shared micromobility support local, regional and statewide mobility goals. programs to meet local needs. The purpose of Whether shared micromobility programs support this document is to provide baseline regional outcomes around mobility choice and equity or considerations as shared micromobility programs are mode shift and environmental sustainability, there is deployed in the region. a clear link between shared micromobility programs and civic goals. Fostering a shared micromobility As shared micromobility programs launch throughout regulatory environment that is guided by civic goals is the Denver region, communities that have — or particularly important given the relationships between previously had — such programs have insight and the public sector (often a permitting or licensing takeaways to share about their experiences. While agency) and the private sector (often an operating the Micromobility Work Group meetings allowed for entity); thoughtful policies can guide deployment and coordination and collaboration with local agencies partnerships in ways that further civic goals. Working throughout the region, this document is intended together across jurisdictional boundaries with to supplement the in-person opportunities and partners throughout the region provides the public provide further support for local agencies throughout sector with a variety of collaborative opportunities, the region. DRCOG staff compiled considerations such as learning from local deployments, documented at in-person sessions and related coordinating regulatory requirements and evaluating discussions into this document, which will continue to pilot projects. The Micromobility Work Group be updated as innovation and changes in the shared discussed dozens of policy areas and principles, and micromobility sector continue. If there is one certainty identified several areas where regional collaboration about shared micromobility it is: change. on shared micromobility programs is essential.

Trips in the Denver region often cross jurisdictional

2 DRCOG Model 2015, RTP-2017, DRCOG Region 3 National Association of City Transportation Officials, Shared Micromobility in the US, 2019 https://nacto.org/shared-micromobility-2019/ 4 DRCOG Region, trips between Oct. 1, 2019 and Sept. 30, 2020 5 City and County of Denver, Denver Dockless Mobility Program Pilot Interim Report, February 2019

5 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION boundaries during travel. Shared micromobility, What’s changed as a result of especially in dockless systems, facilitates unfettered the COVID-19 pandemic? travel through and across jurisdictional boundaries. In March 2020, as the COVID-19 pandemic began Trips are made by individuals making personal travel to affect the region, transportation was disrupted. decisions, and as such, micromobility vehicles may During the Stay-at-Home order in early spring, people start the day in one jurisdiction and end it in another. traveled significantly less in the Denver region, and As such, the work group identified that it is important with remote work options for some of the population, to initiate cross-jurisdictional dialogues to most travel significantly decreased from pre-pandemic efficiently facilitate shared micromobility for users, levels. Shared micromobility services saw a dip in vendors and jurisdictions. trips during late March and April, especially in the Many stakeholders in the Denver region recognize the early weeks of the pandemic when some operators 6 potential benefits of presenting micromobility vendors temporarily removed vehicles from the streets. with similar considerations for working within multiple However, during the summer months, riders gradually jurisdictions in the region. There is also a potential took more shared micromobility trips. It is possible benefit to coordinating policies, shared micromobility that with the Regional Transportation District’s transit frameworks and agreements. For example, service reductions and travelers’ desire to stay in coordinated policies may allow smaller jurisdictions to open air, more people chose shared micromobility to present viable market opportunities for micromobility get around instead of other shared mobility services. providers operating elsewhere in the region. Some shared micromobility operators stepped in to Although there are opportunities to collaborate provide transportation for front-line workers, others with regional partners, DRCOG’s staff recognize expanded shared micromobility travel options the importance of local decisions in guiding shared into areas where transit service was less frequent 7 micromobility programs. This document is not or reduced. The industry was initially challenged intended to provide rules or regulations. Rather, it by the reduction in commuter and leisure travel to outlines important considerations and opportunities central business and entertainment districts where for which regional collaboration has the potential nonresident populations previously used shared to benefit various stakeholders within the region. micromobility devices. This document was developed after an engagement Despite the pandemic, the benefits of shared process with local and regional partners through the micromobility are still evident, especially when Micromobility Work Group over more than a year. considering the local goals they support. Micromobility (personal and shared) continues to provide transportation options for residents of the region and visitors alike. As more and more people prioritize social distancing and outdoor activities in response to COVID-19, the benefits of micromobility (personal and shared) are becoming more appealing to people who may have previously used other modes of shared mobility.

6 https://www.9news.com/article/news/health/coronavirus/electric-scooter-fleets-denver-lime-bird-razor-lyft--city-travel/73-05652881-e3bd- 4ed6-b4b7-021ddbf8b7bd 7 https://www.covidmobilityworks.org/find-responses?search=Denver

6 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Shared micromobility in Aurora and Lime pulled out to focus on the Denver the Denver region market. Since then, the city has revised its rules and regulations to include a broader focus on shared Communities in the Denver region have introduced mobility. The City of Aurora Shared Mobility Small several pilots and ongoing shared micromobility Devices License Program (2019) Rules, Regulations programs, starting with one of the first bike sharing and Application are available on its website.8 systems in the nation. DRCOG staff have worked with communities throughout the region to better understand City of Boulder the benefits and challenges inherent in micromobility The City of Boulder is home to Boulder B-Cycle, a pilots, ongoing programs and discontinued nonprofit bike sharing system with more than 45 arrangements; brief summaries are provided here. stations and approximately 300 bikes. The docked Regional Transportation District system launched in May 2011. System users have taken over 100,000 trips since then, and the program RTD requires all shared micromobility operators serves around 15,000 riders annually.9 The Boulder to obtain a license agreement before deploying City Council has been further exploring shared any vehicles on RTD-owned property. The license micromobility services, like e-scooters and e-bikes, agreement requires micromobility operators to to support the city’s Transportation Master Plan and stage their vehicles within a defined stencil area and Climate Commitment goals. The City of Boulder to resolve issues with micromobility vehicles in the issued a request for information for dockless e-bikes public right of way immediately. There is typically a in late summer 2020. In September 2020, Boulder fee associated with the license agreement, which City Council authorized the inclusion of shared is negotiated directly between RTD and the shared e-scooters in a designated area as part of the city’s micromobility operator. Shared Micromobility Program. In first quarter 2021, the City of Boulder will issue a RFP to select one or more operators to provide both e-bike and e-scooter share. The City of Boulder anticipates initiating a new BIKE & SCOOTER SHARE SCOOTER & BIKE program in the summer of 2021.

PARKING City of Denver PARKING Denver Bike Sharing Denver Bike Sharing is the nonprofit that owned BIKE & SCOOTER SHARE and operated Denver B-Cycle, a station-based, bike sharing program in Denver through 2019. It was established in 2010 to create a shift toward biking and to connect and extend public transportation City of Aurora service areas. The program was the nation’s first The City of Aurora was the first city in Colorado to major, citywide bike sharing program. While it served introduce a dockless bike-share permit program. In many travelers in and around Denver, Denver B-Cycle 2017, the city issued permits to and Lime and service was discontinued in early 2020. implemented the first local dockless bike-share permit program. In August 2018, Ofo ceased operations in

8 https://www.auroragov.org/residents/transportation___mobility_resources/shared_mobility_program 9 https://boulder.bcycle.com/blog

7 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Dockless mobility pilot to announce the operator(s) that will be licensed to In the summer of 2018, shortly after the unauthorized operate shared micromobility programs. Its ongoing launch of shared e-scooters on Denver streets, the program is expected to be a license-based, no-fee City and County of Denver developed a Dockless approach which is unique nationwide in that it focuses Mobility Vehicle Pilot Permit Program under its on potential partnership opportunities between the existing Transit Amenity Program.10 The program public and private sector to pursue and support civic included a variety of shared micromobility devices goals and is not regulated through a permit program. including: , e-bikes, e-scooters and other Other programs approved dockless mobility vehicles. The pilot The City and County of Denver is home to other included five operators and city staff collected data shared micromobility programs, like the nonprofit-run throughout the pilot, including through public surveys Northeast Transportation Connections bike library, that provided input on the program.11 The pilot was which is station-based and provides customer- extended into 2019 and will continue to operate until focused services in the transportation management a new license is granted under an ongoing program, association’s service area.13 anticipated in late 2020 or early 2021.

Ongoing program City of Golden In March 2020, the City and County of Denver The City of Golden is home to a locally operated bike 14 released a request for qualifications for shared sharing system. Bikes are available at the Golden micromobility services.12 City and County of Denver Visitor Center and two other downtown locations. The staff conducted a competitive bidding process over library provides free two-hour rentals and paid day- the summer of 2020 and the jurisdiction is expected long rentals. The bike library is seasonally operated,

10 https://www.denvergov.org/content/denvergov/en/transportation-infrastructure/programs-services/dockless-mobility.html 11 https://www.denvergov.org/content/dam/denvergov/Portals/705/documents/permits/Denver-dockless-mobility-pilot-update-Feb2019.pdf 12 https://www.denvergov.org/content/denvergov/en/transportation-infrastructure/programs-services/dockless-mobility.html 13 https://netransportation.org/bike-library/ 14 https://www.cityofgolden.net/play/recreation-attractions/bicycling-in-golden/golden-bike-library/

8 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION and offers both adult and children’s bikes. The Golden City of Thornton Bike Library is the city’s only shared micromobility In 2018, the City of Thornton authorized a permit- program; however, in 2018, Ofo, a dockless bike-share based two-year bike-share pilot program.19 City company, launched a pilot for a few weeks before Ofo staff coordinated with neighboring jurisdiction staff left the North American marketplace.15 including from Brighton, Commerce City, Federal Heights, Northglenn and Adams County, in addition to City of Lakewood its local transportation management association, Smart In 2019, the City of Lakewood conducted public Commute Metro North. There are currently no shared engagement to learn about Lakewood residents’ micromobility operators in the City of Thornton. thoughts on dockless scooters.16 As a bordering jurisdiction to Denver during its dockless mobility City of Westminster pilot, the community proactively engaged residents In 2016, the City of Westminster, along with community before developing a regulatory structure for shared partners and , launched its first bike-share micromobility services. The City of Lakewood program.20 The program provided recreation and approved regulations for micromobility in September commuter access to Westminster’s trails and open 2019. There are currently no shared micromobility space for people of all abilities. Three kinds of bikes operators in the City of Lakewood. were available in the program: hand-cycles, and cruisers. The program was moderately used, City of Lone Tree facilitating approximately 1,500 total trips. In August In 2018, the City of Lone Tree was home to a dockless 2018, due to lack of sponsorship funding, Zagster bike share pilot. Ofo operated in Lone Tree and at withdrew from the program and its operations RTD stations, like Lincoln Station, under a ceased. In December 2020, there were are no shared pilot program.17 The pilot ended when Ofo ceased micromobility operators in Westminster. The city operations in the North American market in summer will identify the first steps in evaluating a potential of 2018. There are currently no shared micromobility micromobility administration program as part of the operators in the City of Lone Tree. development of Westminster’s Transportation and City of Longmont Mobility Plan, under development as of December The City of Longmont launched a station-based 2020, supported by initial community input about bike-share program in 2017 operated by Zagster. micromobility gathered in summer 2020. With innovations in the service model for bike-share programs, it adapted and included the Pace bike sharing system. Due to circumstances associated with COVID-19, the program ended in June 2020 when Zagster discontinued service.18

15 https://www.goldentranscript.net/stories/yellow-ofo-bikes-leave-golden,267734 16 https://www.lakewoodtogether.org/dockless-mobility 17 https://lonetreevoice.net/stories/bike-sharing-program-comes-to-lone-tree,258472 18 https://www.longmontcolorado.gov/Home/Components/News/News/11010/3 19 https://www.thorntonco.gov/government/city-council/Documents/meeting-documents/2018/071018/9C.pdf 20 https://zagster.squarespace.com/press/westminster-and-zagster-introduce-inclusive-bike-share-program

9 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Regulatory environment not be met. Permit programs also provide flexibility Communities in the Denver region either do not to operators as they come to market; many permit have regulatory frameworks or have used a variety of programs accept applications on an ongoing basis. regulatory frameworks to allow shared micromobility As part of the changing regulatory environment, fee services to operate in both pilot and ongoing shared structures have also changed since the initial launch micromobility programs. The regulatory structure of of dockless bike-share programs and are a major these programs has shifted as the devices, fees and consideration for communities deploying shared service offerings have changed since initial launches. micromobility programs. The City and County of As dockless, shared micromobility programs Denver, as part of its competitive selection process to have entered local markets, the Denver region’s award a license to a shared micromobility operator, is communities have issued permits and licenses to reconsidering fees and instead focusing on partnerships multiple or single operators. The Micromobility with operators that rely more on trip subsidies to riders, Work Group has concluded that it’s important for rather than a payment to the public agency. In other local agencies to consider the regulatory structure communities, fee structures may include application, that works best in their community and which best annual operating or permit fees, fees per device, or supports its stated goals and outcomes for a shared per-trip fees. Fees are used to cover direct and indirect micromobility program. program support; fees are typically used to support Over the last year, some communities throughout the administration of the program and investment in the nation have shifted from a focus on permit-based supportive travelway and parking infrastructure. pilot programs to more formal solicitation processes like requests for proposals or qualifications. Using a State law (HB19-1221) competitive selection process to award a license to In 2019, the State of Colorado adopted operate allows communities to focus on selecting language concerning the regulation of electric operators based on a set of public outcomes detailed scooters. The law authorized the use of electric in a formal request for proposals or qualifications. The scooters on roadways. Previously they had been approach allows communities to limit the number of considered toy vehicles and thus not authorized 21 operators and select proposals that best meet the for use on roadways. The law, HB19-1221, jurisdiction’s desired outcomes while simultaneously defines an electric scooter as a device that: supporting specific civic goals. In 2020, the City and weighs less than 100 pounds, has handlebars, County of Denver issued a request for qualifications to is powered by an electric motor and has a solicit proposals for shared micromobility services via maximum speed of 20 mph. The law authorizes a license to operate. local governments to regulate the operation of an electric scooter in a manner that is no more The Denver region also has communities that opted restrictive than the manner in which the local for permit-based programs. The benefits of permit- government may regulate an electric . based programs may include faster turnaround time as compared with a competitive selection process, and Innovation in the sector could result in vehicles many agencies have permitting protocols in place that either incorrectly classified or not classified can potentially handle micromobility permit programs. at all, making continual monitoring of device Some jurisdictions may favor permits in terms of classification a critical consideration. revocability, should compliance with the regulations

21 https://leg.colorado.gov/bills/hb19-1221

10 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Getting started and of getting started with an interdisciplinary team. program administration Cross-divisional conversations can inform the fee requirements and resources needed to implement Before discussing focus areas for collaboration, a shared micromobility program and better communities in the Denver region discussed initial position communities to make sure their regulatory steps that would help set communities up for success structure and requirements are set up in a way that through early engagement with stakeholders (internal works for all internal stakeholders. Communities and external) and operators. have demonstrated the importance of internal Plan support and local context stakeholder discussions. Here are several examples When local agency staff are considering how for consideration: shared micromobility might fit in their community, • The City and County of Denver continues the Micromobility Work Group suggests it is to work with its police and safety teams a good practice to first consider existing plan throughout deployment on enforcement support and local context. For example, the City and evaluation efforts. Denver staff suggests and County of Denver tied its pilot program to it’s important to consider enforcement and mobility goals in Denver’s Mobility Action Plan. ticketing efforts ahead of initial deployment with Clarifying the relationship between the dockless police department and public safety partners. mobility pilot and local civic priorities was a step • During the development of its pilot program, critical to introducing and evaluating the pilot. the City of Thornton consulted its internal team Several communities in the Denver region that including the city manager’s office, planners, have introduced or planned pilots cited using police and public works. local transportation plan or comprehensive plan • The City of Aurora has an existing working goals as a way to frame micromobility programs or group made up of public works, parks pilots. Staff of communities in the Denver region and recreation, code enforcement and also mentioned looking to other local policies or police representatives that it worked with pilot programs in the region as they developed to discuss its micromobility program. City pilot programs or regulatory structures for their staff considered this partnership of internal jurisdictions. For example, City of Thornton staff departments critical to getting program details looked to the City of Aurora’s original bike-share in front of city officials. program as they developed Thornton’s bike-share External stakeholder discussion pilot program. Several communities noted the importance of Stakeholder engagement working with other local and regional partners, Internal stakeholder discussion whether linking shared micromobility goals to When beginning conversations around launching a regional Metro Vision targets or coordination with pilot or ongoing program, the Micromobility Work other local groups like transportation management Group suggests it is important to bring together associations. Jurisdiction staff correlated aligning an internal team to get perspectives from all program outcomes to goals and targets with departments — from public works or transportation success in getting the message to partners and and community planning, to parks and safety — and, gaining acceptance and buy-in about the program. of course, consulting the community’s legal team. Communities have demonstrated the importance of All communities that have developed pilot programs external stakeholder discussions. Here are several in the Denver region have stressed the importance examples for consideration:

11 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION • The City of Thornton worked with the North • The City of Lakewood conducted extensive Area Transportation Alliance when it developed public outreach prior to introducing a pilot its bike-share pilot program guidance and then or permanent program for dockless mobility city staff took the ideas that had been discussed devices. Its outreach included four open at the North Area Transportation Alliance to the houses, newsletters, posts on NextDoor, Thornton city manager before moving forward. Looking@Lakewood council presentation, Having outside, local support helped move the online survey, interactive mapping tool and pilot through the approval process. provider inclusion. • The City and County of Denver continues to survey both dockless mobility users and Working with operators nonusers on their thoughts about e-scooters Staff from communities that have implemented and e-bike sharing programs. The City and micromobility pilots and programs have also County of Denver evaluated efforts with a noted the importance of coordination with survey midway through its dockless mobility shared micromobility operators. Local staff found pilot program (February 2019). Alongside extensive collaboration helpful; when operators and other evaluations (observation and intercept communities were aligned on initial pilot or program survey work), Denver staff are using external goals they were encouraged by the different ways stakeholder input to inform next steps, once the they could be better partners. pilot program has concluded.

12 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Pilot programs 1. Define the pilot goals and outcomes at the Many shared micromobility programs are first beginning of the process and make sure every deployed as pilot programs. Pilot programs provide pilot activity is designed to achieve them. local agencies with an opportunity to study the 2. Study what happened and put those deployments and effects of shared micromobility findings into a final evaluation report. programs on local goals and to hear from constituents 3. Foster relationships and build trust. about considerations before developing an ongoing 4. Create a policy framework (such as or permanent program. The Micromobility Work regulations, contracts, agreements) for Group considers it important for agencies to consider each pilot project that advances the public flexibility in deploying of pilot programs because good and is easy to understand. shared micromobility is part of a transportation 5. Build in compliance mechanisms. technology sector that is rapidly changing. 6. Measure the impact on equity, health, The Micromobility Work Group supports the safety, the environment and the economy. recommended actions outlined in Urbanism Next’s 7. Measure the impact of the pilot project Perfecting Policy with Pilots report. on transit. 8. Collect information needed to ensure the Urbanism Next studied new mobility pilots and public good (while protecting privacy) developed its Perfecting Policy with Pilots: New and produce useful information to make Mobility and AV Urban Delivery Pilot Project relevant policy decisions. Assessment report which details lessons learned, 9. Apply these lessons learned and emerging trends and considerations regarding recommendations to AV and other types new mobility pilots.22 It recommend 10 actions for of pilots. pilot projects: 10. Plan for volatility.

22 https://www.urbanismnext.org/resources/perfecting-policy-with-pilots-new-mobility-and-av-urban-delivery-pilot-project-assessment Source: jenlo8/Bigstock Source:

13 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Focus areas for collaboration throughout the country to keep up with the state Coordination of the practice. DRCOG staff participate in national Regional coordination efforts and conversations as part of the Open Mobility DRCOG staff will continue to collaborate with local, Foundation and SAE International’s Mobility Data regional, state and federal partners through the Collaborative. DRCOG will provide resources from regional Micromobility Work Group. RTD will continue its staff’s participation in these efforts to partner to work with shared micromobility operators in the agencies through the Micromobility Work Group as region to obtain a license agreement before deploying they are made available. any vehicles on RTD-owned property. Ongoing Local governments in the Denver region may also communication and coordination regarding shared participate in national collaboratives, such as the micromobility will inform future work of DRCOG staff National Association of City Transportation Officials, and revisions to this document. Collaborating across on shared micromobility. jurisdictions and providing support to local agencies is a critical component of ensuring a successful, Data and privacy multimodal transportation network in the Denver Among regional Micromobility Work Group region. Formed in late 2019, the region’s Advanced members, data and data sharing was a highly ranked Mobility Partnership will also provide a place for focus area for regional collaboration. From collecting stakeholders and local governments to coordinate on data in the same format to having resources to issues that relate to shared micromobility.23 analyze and use the data, there was consensus from local partners that data-related considerations in Statewide coordination program deployment was important. DRCOG staff have invited statewide partners from both CDOT and the Colorado Department of Public The work group considers it important for public Health and Environment to participate in conversations agencies to have shared micromobility data to about shared micromobility through the regional manage the public right of way. Depending on the Micromobility Work Group. DRCOG staff have also local agency, specific use cases for the data collection presented to the Colorado Statewide Metropolitan should be made clear. The identification of use cases Planning Organization group and invited staff from and implementation of data privacy policies helps (1) other Colorado metropolitan planning organizations clarify the purpose of public agency data collection to participate in workshops and educational and (2) better inform the public and operators of the opportunities. Staff will continue to be engaged in commitment to protecting personal privacy. Some statewide partner efforts on shared micromobility and of the potential use cases might relate to regulating share resources and opportunities with partners as they shared micromobility programs and policies, and arise. CDOT is currently developing a Micromobility conducting planning analyses. The New Urban Guide, which will be shared with regional partners Mobility Alliance has developed a catalog of potential when it is available to external stakeholders. use cases as they relate to policy area outcomes in the areas of equity, safety, environment and usage.24 National coordination Since late 2019, DRCOG staff have worked with Coordinating on mobility data in the region potentially national partners on shared micromobility efforts. offers participating communities opportunities In an ever-evolving field, DRCOG relies on partners to discuss and implement consistent privacy

23 http://advancedmobilitypartnership.org 24 https://policydata.numo.global

14 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION practices regarding the collection and use of shared cross-jurisdictional metrics and access to aggregated micromobility data. Individual shared micromobility and summarized information. trip data is sensitive and should be treated as The Micromobility Work Group suggests that data protected information. The Micromobility Work Group requests in communities should be tailored to ensure encourages communities in the region to consult the the information collected can be used to regulate, Open Mobility Foundation’s Mobility Data Specification monitor and assess shared micromobility programs. Privacy Guide for Cities for additional considerations.25 Typically, communities wish to obtain information Communities in the Denver region were encouraged such as, but not limited to: by wide adoption of the Mobility Data Specification • daily total vehicles deployed (available, (MDS), a framework for using data to manage the unavailable) public right of way. Pioneered by the • hourly/daily total trips Department of Transportation, MDS is now an open- • daily morning deployment by area source specification overseen by the Open Mobility • daily vehicle utilization rates Foundation. MDS reduces or eliminates the need • average trip distance for operators to develop custom data fields unique • average trip duration to each jurisdiction. MDS allows local agencies and • trip origins and destinations shared micromobility operators to share information • trip routes in a standard format. • parked vehicle locations

Public agencies can share platform and analytics The National Association of City Transportation tools if regulatory agencies request data in an MDS- Officials and the International Municipal Lawyers compliant format and ensure third-party data sharing Association published Managing Mobility Data.26 The provisions are included in their agreements with resource outlines four key principles around mobility operators. Using a third-party (public or private data management including: sector) aggregator provides potential cost savings as • Public Good: Require data to ensure positive individual agencies do not need to develop or hire safety, equity and mobility outcomes for out the expertise typically needed to analyze raw data vendors operating in public right of way. or MDS feeds. Additionally, refining an approach to • Protected: Treat geospatial mobility data the shared micromobility data and data sharing benefits same as personally identifiable information; partners throughout the Denver region by providing should be gathered, held, stored and released in accordance with existing policies and In 2020, DRCOG staff coordinated a shared practices for personally identifiable information. micromobility data pilot alongside partners from • Purposeful: Be clear about what data is the City and County of Denver, RTD and CDOT. collected and highlight why data is needed for The partners selected a third-party vendor, Ride planning, analysis and enforcement activities. Report, to ingest and share aggregated data • Portable: Prioritize open data standards and among regional partners. The pilot, continuing formats, data-sharing agreements should allow into 2021, supports staff exploration of regional cities to own, transform and share data without emerging mobility data sharing and opportunities restrictions so long as standards for data to share tools and mobility data analytics. protection are met.

25 https://github.com/openmobilityfoundation/governance/blob/main/documents/OMF-MDS-Privacy-Guide-for-Cities.pdf 26 https://nacto.org/managingmobilitydata/

15 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION REGIONAL APPROACH that emphasize personal privacy and outline In the Denver region, the Micromobility Work Group safeguards that protect sensitive and suggests that agencies should: potentially sensitive information • require data in a standard, machine readable • share with the public how they use the data format they request from operators, specifying use • request and collect data that supports cases and examples wherever possible program goals so pilots and ongoing LOCAL CONSIDERATIONS programs can be properly evaluated Local agencies may also wish to consider: • request access to Mobility Data • participation in DRCOG’s regional Specification-compliant application micromobility data sharing program pilot, programming interfaces to participate in which provides access to a platform and regional data sharing and platform access in dashboard to view local agency data using coordination with DRCOG staff Mobility Data Specification application • require General Bikeshare Feed Specification programming interfaces from operators feed, also ensure it is publicly available • development of policies considering how to • request vehicle-generated data, not treat micromobility data when requested by information collected through a user’s law enforcement mobile app • collaboration with operators to survey riders • require data-sharing agreements such that at a regular interval to better understand data can be shared with third parties, like state shared micromobility effects and regional public agencies like DRCOG, • allocation of resources for training on RTD and CDOT and third-party data vendors applicable laws and best practices for • work with operators to understand the data safeguarding data they collect about users and how that data • joining the Open Mobility Foundation and is used participating in the ongoing development • review operators’ user agreements and data and improvements to the Mobility Data privacy policies for consistency with privacy Specification best practices • implement mobility data privacy policies

16 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Operations Communities can support shared micromobility by Shared micromobility travelers typically use active continuing to plan, design and build high-comfort transportation facilities where possible. The roadway active transportation facilities. Often, and especially conditions, bicycle facilities or shared-use paths early on in deployment of e-scooter programs, that are available may influence the choice to use travelers often chose sidewalks where busy streets a shared micromobility device and the route an had no protected bicycle facilities because they did individual might travel. As the popularity of shared not feel safe traveling alongside on-street traffic. The micromobility has increased, the need to build more Micromobility Work Group suggests that devices like light, small-vehicle accommodations is evident and shared e-scooters and bicycles should be ridden in has increased interest by travelers in slow streets bike lanes (conventional, buffered and protected), and high-comfort bikeways. Connectivity and along bicycle boulevards, neighborhood bikeways safe facilities are more important than ever with and shared use paths (where bicycles are allowed), additional small and lightweight vehicles using the and on-street when no dedicated facility is available. transportation system. The Micromobility Work Group recognizes that DRCOG conducted a survey as part of the sometimes shared-use paths, especially along development of its regional Active Transportation major arterials, may look like sidewalks, but typically Plan. Survey responses showed the importance are constructed to a different specification to of separated facilities in contributing to a rider’s accommodate two-way travel of both bicyclists comfort, with three times the number of people and pedestrians, and as such are appropriate for feeling very comfortable riding in a separated shared micromobility travel. The operational domain facility versus riding in a conventional on-street for shared micromobility devices should be the bike lane. same as those facilities where bicycle (for human-

17 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION powered micromobility) and/or e-bike (for electric agencies identify parking guidelines (for example, micromobility) travel is encouraged. distance from curb edge or transit stop) to ensure clear walkways for pedestrians, and sometimes While the best place to park shared micromobility communities designate or require operators to devices may sometimes be obvious, like in a station- designate specific parking areas, especially at major based bike sharing system, often dockless devices destinations like transit or mobility hubs, or shopping may be parked at the whim of the rider. Typically local and entertainment districts.

REGIONAL APPROACH parking shared micromobility devices The Micromobility Work Group suggests that in the • communicate with operators the location of Denver region, agencies should: no-ride or no-parking zones and encourage • define the shared micromobility service area geofencing in-app • encourage the use of shared micromobility • require operators to provide education using facilities where bicycles (for human materials and in-app instruction where no-ride powered micromobility) and e-bikes or no-parking zones exist in the service area (for electric micromobility) operate and LOCAL CONSIDERATIONS discourage the use of shared micromobility Local agencies may also wish to consider: devices on sidewalks, where bicycles/e- • relationship and connectivity to transit, if bicycles are not allowed to operate transit operates in its service area • invest in high comfort active transportation • device utilization rate requirements facilities that support safe, comfortable • desired rebalancing strategies and and connected transportation networks for procedures micromobility travelers • additional restrictions pertaining to parking • identify parking regulations for shared requirements micromobility devices such that they do not • identification of desired parking corral interfere with pedestrian travel or restrict locations access to or from pedestrian facilities at the • identification of the window of time that curb, crosswalk, transit stop, etc.; and where operators are responsible for removing parking areas are not limited to specific improperly parked vehicles once reported operators • procedures and costs associated with • identify fleet size minimums, maximums or removal or storage of improperly parked dynamic fleet sizing based on performance vehicles if operators do not remove them from • require devices to be parked upright and in unauthorized locations the public right of way • fees associated with each ride or • require operators to rebalance vehicles in the deployed device service area • physical signage designating no-ride zones • require operators to develop and share • designating micromobility parking areas operations plans (for example: on-street corrals, bike racks, • require operators to provide education painted zone) materials and in-app instruction on correctly

18 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Equipment and safety implemented, micromobility must be discussed as The Micromobility Work Group suggests that as part of a comprehensive safety strategy. As new new micromobility devices are introduced to the vehicle types enter the micromobility market, public market, standards, operator practices and policies agencies should consider how to track crashes and must be able to adapt. Given the relationship vehicle safety issues. There are limitations in crash between vehicle classification and regulatory and safety-related data collection; DRCOG staff environments, agencies must work together will continue to track local practices in collection to ensure equipment is classified correctly and and analysis of this data. DRCOG staff will convene meets the State of Colorado’s legal definitions. future discussions on micromobility safety through As Vision Zero plans are developed, adopted and the Regional Vision Zero Working Group.

REGIONAL APPROACH • require operators to inform the local agency In the Denver region, the Micromobility Work Group of any shared micromobility incidents suggests that agencies should: immediately, including crashes, device • require shared micromobility devices to tampering, battery hazards and personal clearly display a unique vehicle ID and contact injuries information for the operator • participate in discussions of micromobility • require each device to be equipped with a safety through the Regional Vision Zero GPS to provide location information for the Working Group device LOCAL CONSIDERATIONS • require devices to meet the legal definitions as Local agencies may also wish to consider: identified by applicable laws • specific limits on liability and appropriate • require devices comply with safety standards insurance coverage defined by the Consumer Product Safety • lock-to requirements Commission and other applicable federal, • the amount of time within which providers state and local standards must remove a vehicle from the right of way if • require operators to provide education to there is a reported maintenance or safety issue users regarding state and local laws both in- with it app and through additional materials available • specific emergency management plans through the operator that address fleet removals in the event of • require operators to provide contact emergencies information in-app and online so customers • collection of micromobility equipment safety can notify operators of safety or maintenance issue information issues with a vehicle • require operators to include information about maintenance, inspections and repairs in their operations plans

19 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Equity The Micromobility Work Group suggests that In the ever-changing transportation technology sector, engagement and outreach is an essential component barriers to access and use often have direct and indirect of any equity-related considerations and should be equity effects. For example, docked bike sharing built into the process of program or pilot deployment. systems have been shown to further improve mobility The ongoing City and County of Denver shared for people that have better access and more mobility micromobility program is anticipated to include a choices disproportionately compared with those with major equity component; in the Denver pilot program, fewer choices and less access.27 The Micromobility Work the City and County of Denver identified opportunity Group suggests that shared micromobility programs and areas and encouraged deployment and additional their effects on equity should be a primary consideration vehicles in those areas. Denver staff acknowledges that as programs are planned and deployed. robust equity components of a program may come at a cost to operators, and addressed this in the overall A starting point for local agencies is to be specific in de- development of their anticipated ongoing program, fining the desired equity outcomes for their communities with specific consideration of fees. The City of Aurora and shared micromobility programs. Communities may required any city-licensed or permitted operation to want to focus on location-based equity and equitable serve opportunity zones. Communities in the Denver distribution of vehicles by identifying zones or areas in region have discussed incentives like dynamic fleet size which people have less access to transportation options increases if an operator deploys more vehicles in equity or areas that are not served frequently — or at all — by zones or opportunity areas and low-income or pass transit. Other communities may want to focus on pop- programs that are integrated with existing programs. ulation-based equity, by providing free and reduced DRCOG staff will continue to monitor current practices fare and pass programs throughout the service area to and share information with local agencies throughout vulnerable populations, including cash or nondigital the Denver region. payment methods for individuals without smartphones or credit cards.

27 https://transweb.sjsu.edu/sites/default/files/1131-public-bikesharing-business-models-trends-impacts.pdf

REGIONAL APPROACH hand-trike or seated scooter options The Micromobility Work Group suggests that, in the alongside other shared micromobility devices) Denver region, agencies should: • provide information on income-based discount • define the desired outcomes and potential programs and credit-free access programs challenges of a shared micromobility program LOCAL CONSIDERATIONS with respect to equity Local agencies may also wish to consider: • conduct outreach and education activities that • requiring operators to develop an equity plan engage people in equity zones or opportunity • coordination of reduced-fare passes and areas and from vulnerable populations programs with existing local and regional • require operators to have methods for cash programs or credit card-free payment to allow people • identification of a micromobility ambassador without smartphones or those who are at a local agency to provide guidance and unbanked to use shared micromobility services resources for those who need help accessing • encourage fleet mix such that adaptive shared micromobility services options are made available for people with mobility challenges (for example, offering

20 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Communications and community engagement civic goals that are part of the region’s transportation Communities and operators should work demand management strategy, such as reducing together, alongside DRCOG, CDOT, RTD and local vehicle miles traveled and improving air quality. transportation management associations to inform Encouraging operators to provide educational the public about how to use shared micromobility as opportunities about the basics of using shared a travel option, along with transportation demand micromobility, and what to do to support the management-related initiatives that may be part of program’s success, helps residents and visitors accept any shared micromobility program. Micromobility and understand the new mode as it is introduced to facilitates short trips and can contribute to many communities throughout the region.

REGIONAL APPROACH • engage with the regional transportation The Micromobility Work Group suggests that in the demand management program, DRCOG’s Denver region, agencies should: Way to Go program, to represent • provide educational opportunities (in-app, micromobility in the suite of smart commute online and in-person) to visitors and residents options that are part of its regional initiatives of the service area to learn about: LOCAL CONSIDERATIONS » service areas (including no-ride and no- Local agencies may also wish to consider: parking zones) • requiring operators to develop and share » device usage (how to find a device, start a outreach and engagement plans trip, ride and park a vehicle) • working directly with DRCOG staff and local » safety rules and regulations transportation management associations to » engaging the local agency or operator if market and offer education and outreach there is a problem activities associated with the launch of a • provide materials in English and other shared micromobility program languages that best accommodate potential users in the service area

21 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION Next steps • Urbanism Next, Perfecting Policy with Shared micromobility offers a unique opportunity Pilots: New Mobility and AV Urban Delivery to support the region’s mobility goals and DRCOG Pilot Project Assessment, https://www. staff are committed to ongoing regional coordination urbanismnext.org/resources/perfecting-policy- on shared micromobility. Staff will continue to host with-pilots-new-mobility-and-av-urban-delivery- Micromobility Work Group meetings and facilitate pilot-project-assessment educational opportunities for local agency and • World Economic Forum, Guidelines for City regional partner staff. The Micromobility Work Group Mobility: Steering Towards Collaboration, will continue to serve as a forum to facilitate sharing https://www.weforum.org/reports/guidelines- of lessons learned and discuss new considerations. for-city-mobility-2020 Additionally, as innovation in the sector continues, Data and Privacy Specific DRCOG staff will update this document to reflect the • National Association of City Transportation latest information pertaining to these, and potentially Officials, Managing Mobility Data, h t t p s:// other, focus areas for collaboration. DRCOG’s staff nacto.org/wp-content/uploads/2019/05/ believes we can work together, and share lessons NACTO_IMLA_Managing-Mobility-Data.pdf learned and data to better inform the Denver region’s • National Cooperative Highway Research planning, programming and decision-making. The Program, Framework for Managing Data region’s stakeholders can only do these things by from Emerging Technologies to Support continuing the conversation. Decision-Making, https://www.nap.edu/ Resources catalog/25965/framework-for-managing-data- General from-emerging-transportation-technologies-to- • Bureau of Transportation Statistics, Bikeshare support-decision-making and E-Scooters in the U.S., https://www.bts. • New Urban Mobility Alliance, Leveraging Data gov/topics/passenger-travel/bikeshare-and-e- to Achieve Policy Outcomes, https://policydata. scooters numo.global • COVID Mobility Works, Mobility Responses to • Open Mobility Foundation, MDS Privacy COVID-19, https://www.covidmobilityworks. Guide for Cities, https://github.com/ org/find-responses?search=Denver openmobilityfoundation/governance/blob/ • National Association of City Transportation main/documents/OMF-MDS-Privacy-Guide-for- Officials, Guidelines for Regulating Cities.pdf Shared Micromobility, https://nacto.org/ • SAE International Mobility Data Collaborative, sharedmicromobilityguidelines/ Data Sharing Glossary and Metrics for Shared • National Association of City Transportation Micromobility, https://mdc.sae-itc.com/#work Officials, Shared Micromobility in the U.S., • SAE International Mobility Data Collaborative, https://nacto.org/shared-micromobility-2019/ Guidelines for Mobility Data Sharing • Transportation for America, Shared Governance and Contracting, https://mdc.sae- Micromobility Playbook, https://playbook. itc.com/#work t4america.org TPO-RP-MICROMOBILE-20-12-30-V4

22 DRAFT: SHARED MICROMOBILITY IN THE DENVER REGION