HomeMy WebLinkAbout8.2 Report on Electric Bicycle and Electric Scooter Education and EnforcementSTAFF REPORT
CITY COUNCIL
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Agenda Item 8.2
DATE:May 6, 2025
TO:Honorable Mayor and City Councilmembers
FROM:Colleen Tribby, City Manager
SUBJECT:Report on Electric Bicycle and Electric Scooter Education and
Enforcement
Prepared by: Victor Fox, Chief of Police and Jordan Foss, Management
Analyst II
EXECUTIVE SUMMARY:
The City Council will receive a report on current laws and efforts by Dublin Police Services to
conduct education and enforcement in the community related to the use of electric bicycles
and electric scooters. The report includes recommended action items designed to enhance
outreach and ensure compliance with applicable laws and regulations.
STAFF RECOMMENDATION:
Receive the report and provide direction on the creation of a bicycle ordinance and
administrative citation program, and enhanced education and enforcement efforts.
FINANCIAL IMPACT:
None.
DESCRIPTION:
Background
At the September 3, 2024 meeting, the City Council asked that Staff explore an electric bicycle
(e-bike) and electric scooter (e-scooter) education program. This request came on the heels of
several incidents involving such vehicles, particularly related to their operation by young
residents travelling to and from school. Since that time, Staff has collected data on incidents
involving e-bikes and e-scooters, evaluated current outreach and educational programs
offered, collaborated with the Dublin Unified School District, and conducted research on
neighboring cities. With this report, Staff is recommending enhancements to Dublin’s policies
and procedures that will help reduce incidents involving e-bikes and e-scooters, as well as
traditional bicycles.
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Definitions
Electric bicycles and electric scooters, commonly referred to as e-bikes and e-scooters, have
become a popular and cost-effective mode of transportation. The following is a brief overview
of the different classifications of e-bikes and e-scooters seen in the City of Dublin.
E-Bikes
An electric bike, or e-bike, is a bicycle equipped with an electric motor to assist the rider when
they are pedaling. The motor receives its power from a rechargeable battery mounted on the
bike. California Vehicle Code (CVC) 312.5 and 231 define e-bikes as bicycles. Additionally,
CVC 21200a establishes that anyone riding a bicycle has the same rights and responsibilities
as a driver of a motor vehicle, meaning that bicyclists are required to obey traffic laws. These
include traveling with the flow of traffic, obeying traffic signs and traffic control devices, and
traveling in bicycle lanes if available.
E-bikes are generally classified into three classes based on their motor assistance and
maximum speed. Class 1 and 3 are pedal-assist only, while Class 2 has both pedal- and
throttle-assist options. The maximum assisted speed is 20 miles per hour (mph) for Class 1
and 2, and 28 mph for Class 3, as shown in Table 1.
Table 1. E-Bikes Classification
Class 1 Class 2 Class 3
Pedal Assist
Throttle
Max Speed 20 mph 20 mph 28 mph
E-Scooters
CVC 407.5(a) defines an electric scooter, or e-scooter, as a two-wheeled device that has
handlebars, has either a floorboard that is designed to be stood upon when riding or a seat
and footrests in place of the floorboard, and is powered by an electric motor. The motor
receives its power from a rechargeable battery mounted on the scooter. CVC 21235 mandates
that all scooter riders in California must have a valid driver’s license and prohibits the operation
of an e-scooter on a sidewalk, except to enter or leave adjacent property. Additionally,
pursuant to CVC 22411, no person shall operate a motorized scooter at a speed in excess of
15 mph.
Table 2 outlines the description, safety requirements, and local and state laws applicable to e-
bikes and e-scooters.
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Table 2. E-Bike and E-Scooter Requirements
Vehicle Description License
Requirement
Helmet
Requirement
Allowable
Locations Other
E-Scooter A two-wheeled vehicle
with a motor,
handlebars, and a
standing floorboard;
may include a seat
that allows for
standing.
Driver's
license or
instruction
permit.
Bicycle
helmet if
under 18
years old.
Bike lanes or
on a road with
25 mph or
less speed
limit; sidewalk
riding
prohibited.
15 mph max
speed limit;
follow rules that
apply to motor
vehicles.
Class 1 and
2
E-Bike
An electric bicycle
with pedal or throttle
assist, providing motor
support up to 20 mph.
None.Bicycle
helmet if
under 18
years old.
Anywhere
traditional
bikes may
ride.
No minimum age
requirement;
follow rules that
apply to motor
vehicles.
Class 3
E-Bike
A pedal-assisted
electric bicycle with a
speedometer,
providing motor
assistance only while
pedaling, up to 28
mph.
None.Bicycle
helmet for all.
Anywhere
traditional
bikes may
ride.
16 years and
older to ride;
follow rules that
apply to motor
vehicles.
Current Education and Enforcement Efforts
The Dublin Police Services (DPS) Patrol Division, Traffic Unit, School Resource Officers, and
the Crime Prevention Unit have collectively participated in community education efforts related
to e-bikes and e-scooters. The emphasis has been on education to raise awareness among
riders regarding current laws. Specifically, DPS has made the following efforts to enforce laws
and to provide public education.
DPS and City staff created social media posts on e-bike and e-scooter safety and
produced an educational video that was distributed online.
DPS worked with the Dublin Unified School District (DUSD) to ban the use of e-scooters
at all elementary and middle school campuses. This was in response to several
collisions involving e-scooters, as well as laws prohibiting their use for riders without a
driver’s license or permit.
DPS published an e-bike informational flyer.
DPS continued the Bicycle Rodeo and Safety program to all Dublin elementary schools
during the summer months for students in attendance. This program supports safe
bicycle riding and builds upon the students’ riding ability in a safe and controlled
environment.
School Resource Officers worked with the schools to provide guidance and education to
staff and students.
DPS issued 24 citations citywide in 2024, compared to none in 2023, and none thus far
in 2025. The increase in 2024 was directly related to a targeted enforcement campaign
in response to collisions. The citations DPS currently issues are for violations of the
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California Vehicle Code, which are handled through the court system like other moving
vehicle infractions.
DPS will host a Community Safety Fair at Emerald Glen Park on May 17, 2025. Staff
will be present to provide education on electric transportation laws and proper fitting of
safety helmets.
Collision Data
Since January 1, 2023, DPS has taken a total of 56 reports for collisions involving traditional
bicycles, e-bikes, and e-scooters (Figure 1 below). There were just over 20 collisions in each
of the last two full calendar years, with 11 incidents reported in 2025 to date. Ninety-three
percent of these incidents involved a motor vehicle (i.e., bike versus car), and injuries
occurred. This data does not reflect the true number of collisions, as some go unreported.
Figure 1. Bicycle and E-bike/E-scooter Collisions
Surrounding Cities Efforts
To help inform Dublin’s response to e-bike and e-scooter concerns, Staff conducted research
on the policies and procedures in place in the neighboring agencies of Pleasanton, San
Ramon, and Danville. The research concluded that, while safety concerns like Dublin’s exist in
other cities, there are inconsistencies in how each agency regulates e-bikes and e-scooters.
Table 3 below illustrates the findings.
15
8
4
5
7
2
3
7
4
2023
(23)
2024
(22)
2025 (YTD)
(11)
Number of Collisions Bicycles E-Bikes E-Scooters
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Table 3. Comparison of Municipal Safety Measures for E-Bikes and E-Scooters
Municipality Ordinance
Information
Citation
Information Website Safety Program
Danville Ordinance that
bans e-bikes
and e-scooters
from sidewalks
in business
district.
Occasionally cite,
but no exact
citation data
available.
Dedicated webpage
to e-bikes and e-
scooters. Definitions
and safety information
included.
Bicycle rodeo in
collaboration with San
Ramon Valley Unified
School District
(SRVUSD), San
Ramon Valley Fire
Protection District
(SRVFPD), and City of
San Ramon.
Pleasanton Ordinance that
defines
prohibited areas
for operation of
bicycles and e-
bikes.
Occasionally cite,
but no exact
citation data
available.
No information on
website.
None.
San Ramon No ordinance. No citations for
violations.
No information on
website.
Bicycle rodeo in
collaboration with
SRVUSD, SRVFPD,
and Town of Danville.
Dublin No ordinance.Targeted
enforcement of
the CA Vehicle
Code.
Dedicated webpage
on Bike Education
and Safety.
Bicycle Rodeo and
Safety Program offered
to all DUSD elementary
schools.
Findings and Recommendations Next Steps
The City’s social media outreach, inclusion of e-bike/e-scooter safety in the upcoming
Community Safety Fair, and collaboration with DUSD are positive steps towards addressing
concerns with electric conveyance technology. While there have been 11 incidents in this
calendar year to date, Staff is hopeful that the actions already taken will be positively impactful
through 2025, particularly as the DUSD e-scooter ban was put in place after the current school
year began.
However, due to the increasing popularity of e-bikes and e-scooters in the Dublin community,
there is a pressing need to enhance compliance with the laws and regulations regarding their
use. Staff recommends the following next steps as part of a coordinated strategy to enhance
education, ensure compliance, and support responsible integration of e-bikes and e-scooters
in the community.
1. Codification of Bicycle Laws into the Dublin Municipal Code (DMC)
Currently, the DMC only contains Chapter 6.72, which identifies the locations of bicycle lanes
but does not include language pertaining to e-bikes or e-scooters. Developing a bicycle
ordinance would help establish clear expectations for the use of bicycles, e-bikes, and e-
scooters within the community. It would also support enforcement and improve public safety.
The proposed bicycle ordinance would be based on best practices and minimally include the
following:
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Definitions to clearly define terms and classification of bicycles, e-bikes, and e-scooters.
Helmet requirements.
Requirements to obey traffic laws and traffic control devices.
Restrictions on riding in certain areas, such as sidewalks, parks, and playgrounds.
Identification of designated usage areas, including locations where devices are
prohibited.
Enforcement provisions and penalties for violations.
2. Create an Administrative Citation Program for Violations
Creating an administrative citation program would allow DPS to cite violations of the Municipal
Code, rather than the CA Vehicle Code. This would provide a level of local control that does
not currently exist. In addition, instead of routing violations through the court system, which
includes creating a vehicle infraction record, the City would administer the penalty – this will
speed up the process and allow the City to offset enforcement costs.
The citation process would begin with a warning for the first offense, followed by monetary
fines for repeat violations. As outlined in the California Government Code Section 36900, fine
amounts are as follows: $100 for a first violation, $200 for a second violation of the same
ordinance within one year, and $500 for each additional violation of the same ordinance within
one year of the first violation.
It should be noted that DPS staff would reserve the right to issue a “Warning” if the first
violation is not egregious in nature. An example of a case that might warrant a Warning is a
helmeted minor riding an e-bike briefly on a sidewalk in a residential area where there are no
pedestrians.
This program would apply to bicycles, e-scooters, and Class 1-3 e-bikes.
3. Continued Public Education and Outreach
Staff plans to continue and enhance public education and outreach efforts with the addition of
public service announcements, targeted social media posts, and additions to the current
website to include safety videos, resources, and information on the administrative citation
program.
Next Steps
With City Council approval of the coordinated strategy described above, Staff will implement
action items, including bringing back a bicycle ordinance for adoption, and report back to the
City Council in spring 2026 on their efficacy.
STRATEGIC PLAN INITIATIVE:
Strategy 2: Public Safety.
Objective B: Continue to invest in public safety technology and programs that advance
proactive, community policing and protect citizens and law enforcement.
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NOTICING REQUIREMENTS/PUBLIC OUTREACH:
The City Council Agenda was posted.
ATTACHMENTS:
None.
492
Report on Electric Bicycle and
Electric Scooter Education
and Enforcement
May 6, 2025
493
Presentation Overview
Background
Definitions
Current Education and Enforcement Efforts
Collision Data
Surrounding Cities Efforts
Next Steps
494
Definitions
Electric Bicycles (E-Bikes)
An E-Bike is a bicycle equipped with fully operative pedals and an electric motor of
less than 750 watts (CVC 312.5).
E-Bikes are considered bicycles under the California Vehicle Code (CVC 231).
CVC 21200a establishes that anyone operating a bicycle has the same rights and
responsibilities as motorists, meaning that bicyclists are required to obey traffic laws.
495
Definitions, 2
Class 1 E-Bike
•CVC 312.5(a)(1) –A bicycle equipped with an electric motor that provides
assistance only when rider is pedaling with a maximum motor speed of 20 MPH.
Rider Requirements:
•Bicycle helmet (CVC 21212) if under 18 years old.
•No minimum age requirement to ride.
496
Definitions, 3
Class 2 E-Bike
•CVC 312.5(a)(2) –A bicycle with throttle assist, equipped with an electric
motor that can exclusively propel the bicycle with a maximum motor assisted
speed of 20 MPH.
Rider Requirements:
•Bicycle helmet (CVC 21212) if under 18 years old.
•No minimum age requirement to ride.
497
Definitions, 4
Class 3 E-Bike
•CVC 312.5(a)(3) –A pedal-assisted bicycle equipped with an electric motor that
provides assistance only when the rider is pedaling, with a maximum motor assisted
speed of 28 MPH.
Rider Requirements:
•Bicycle helmet (CVC 21212) for all.
•Per CVC 21213, must be 16 years old or older to ride.
498
E-Bikes Classification Table
499
Definitions, 5
E-Scooter
•CVC 407.5 –A two -wheeled device with an electric motor, handlebars, and
either a standing floorboard or a seat with footrests.
Rider Requirements:
•Driver's license or instruction permit required.
•Bicycle helmet (CVC 21212) if under 18 years old.
•May ride in bike lanes or on a road with 25 MPH or less speed limit;
sidewalk riding prohibited per CVC 21235.
•15 MPH max speed limit (CVC 22411).
500
Current Education and Enforcement Efforts
Dublin Police Services (DPS) and City staff created social media posts on e-bike and
e-scooter safety and produced an educational video that was distributed online.
DPS worked with the Dublin Unified School District to ban the use of e-scooters at
all elementary and middle school campuses.
DPS published an e-bike informational flyer in September 2024.
DPS continued the Bicycle Rodeo and Safety Program for elementary students
during the summer months. This program supports safe bicycle riding, challenges,
and builds upon riding abilities in a safe and controlled environment.
School Resource Officers worked with the schools to provide guidance and
education to staff and students.
501
Current Education and Enforcement Efforts, 2
DPS issued 24 citations citywide (2024) for e-bike and e-scooter violations.
Updated the DPS webpage to include e-bike and e-scooter laws as well as tips
for safe riding.
Upcoming Community Event –Hosting a Community Safety Fair on May 17,
2025, at Emerald Glen Park, where staff will educate attendees on e-bike and e-
scooter laws and proper helmet fitting.
502
Collision Data
15
8
4
5
7
2
3
7
5
2023
(23)
2024
(22)
2025 (YTD)
(11)
Nu
m
b
e
r
o
f
C
o
l
l
i
s
i
o
n
s
Bicycles E-Bikes E-Scooters
503
Surrounding Cities Efforts
Municipality Ordinance Information Citation Information Website Safety Program
Danville
Ordinance that bans
e-bikes and e-scooters from
sidewalks in business district.
Occasionally cite,
but no exact citation
numbers available.
Dedicated webpage to
e-bikes and e-scooters.
Definitions and safety
information included.
Bicycle rodeo in collaboration
with SRVUSD, SRVFPD, and
City of San Ramon.
Pleasanton
Ordinance that defines
prohibited areas for
operation of bicycles
and e-bikes.
Occasionally cite, but no
exact citation numbers
available.
No information on website.None.
San Ramon No ordinance. No citations for violations.No information on website.
Bicycle rodeo in collaboration
with SRVUSD, SRVFPD,
and Town of Danville.
Dublin No ordinance. Targeted enforcement of the
CA Vehicle Code.
Dedicated webpage on Bike
Education and Safety.
Bicycle Rodeo and Safety
Program offered to all DUSD
elementary schools.
504
Next Steps
With the increasing popularity of e-bikes and e-scooters in the Dublin
community, there is a need to maintain community awareness of laws and
regulations regarding their use. This is necessary to ensure public safety and
adherence to traffic laws.
Staff recommends the following next steps as part of a coordinated strategy to
enhance safety, ensure compliance, and support reasonable integration of e-bikes
and e-scooters in the community:
Codification of bicycle laws into the Dublin Municipal Code.
Create an Administrative Citation Program for violations.
Continued public education and outreach.
505
Codification of Bicycle Laws into the Dublin
Municipal Code
The current Dublin Municipal Code (DMC) only contains Chapter 6.72,
which identifies the locations of bicycle lanes.
Development of an ordinance would help establish clear expectations for
the use of bicycles, e-bikes, and e-scooters in the Dublin community.
506
Codification of Bicycle Laws into the Dublin
Municipal Code, 2
The proposed bicycle ordinance would be based on best practices and
minimally include the following:
Definitions to clearly define terms and classifications of bicycles, e-bikes, and e-
scooters.
Helmet requirements.
Obedience to traffic laws and traffic control devices.
Designated usage areas, including where devices are prohibited.
Enforcement provisions and penalty for violations.
507
Create an Administrative Citation Program
for Violations
An administrative citation program will allow DPS to cite bicycle, e-bike,
and e-scooter violations under the DMC as opposed to the CA Vehicle
Code.
Instead of routing citations through the court system which generates a
record, the City would administer the penalty locally.
Having local control will speed up the process and allow the City to be
flexible with a warning policy for the first offense.
508
Create an Administrative Citation Program
for Violations, 2
Administrative fine amounts are dictated by the State of California under
California Government Code 36900. The proposed citation process will
begin with a warning for the first offense, followed by monetary fines for
repeat violations.
$100 for a first violation following a warning
$200 for a second violation within one year
$500 for each additional violation of the same ordinance within one
year of the first violation.
DPS staff would reserve the right to use discretion and issue a “Warning”.
This program would apply to bicycles, Class 1-3 e-bikes, and e-scooters.
509
Continued Public Education and Outreach
Development of additional public service announcements, including guidelines
and responsible riding practices.
Launching targeted social media campaigns to engage residents and provide
accessible safety information.
Current website update through the addition of safety videos, resources, and
details about the administrative citation program.
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Recommendation
Receive the report and provide direction on the creation of a bicycle ordinance
and administrative citation program, and enhanced education and enforcement
efforts.
Questions?
511