Item 18 - Regulation of the use of Bicycles and E-Conveyances in Public Areas

Item No.

AGENDA REPORT
DATE: December 8, 2025
TO: Honorable Mayor and City Council
FROM: Trevor Benson, Public Safety Manager
SUBJECT: Ordinance No. 474 and Urgency Ordinance No. 474U Regulating the Use of Bicycles and E-Conveyances in Public Areas
RECOMMENDATION:

That the City Council:

1. Adopt Urgency Ordinance No. 474U, an Urgency Ordinance of the City Council of the City of Yucaipa, California, adding Chapter 9.18 to Title 9 of the Yucaipa Municipal Code Regulating the Use of Bicycles and E-Conveyances in Public Areas, by at least a four -fifths vote; and

2. Approve the Introduction and First Reading of Ordinance No. 474, an Ordinance of the City Council of the City of Yucaipa, California adding Chapter 9.18 to Title 9 of the Yucaipa Municipal Code Regulating the Use of Bicycles and E-Conveyances in Public Areas; and

3. Direct the City Clerk to place Ordinance No. 474 on the consent calendar of the next regular meeting for second reading and adoption.

BACKGROUND/DISCUSSION:

The City of Yucaipa, like many cities throughout California and the country, has experienced a significant rise in the use of electric bicycles (e-bikes) and other electric conveyances (e-conveyances), such as electric scooters and skateboards on city streets, sidewalks, and other public places. While these devices provide sustainable and accessible transportation alternatives, they have also led to an increase in safety concerns -particularly around their operation in public areas where they may conflict with vehicles and pedestrians.

In recent months, community members have increasingly expressed concern regarding unsafe behaviors associated with e-conveyance use. These behaviors include riding at excessive speeds, performing stunts or wheelies in active traffic, ignoring traffic signals and signs, riding without helmets, and carrying multiple riders on a single device. These actions increase the potential for collisions and injuries and have raised significant public safety concerns.

National data reinforces these community concerns and local trends. According to the U.S. Consumer Product Safety Commission (CPSC), injuries associated with e-bikes, e-scooters, and similar devices have increased by more than 20% each year. From 2017 to 2022, the CPSC reported 233 related fatalities nationwide, underscoring the urgency for cities to adopt regulations that help mitigate risk and protect all users of public spaces. In addition to safety concerns, the City has observed damage to public property, particularly in parks and open spaces where e-conveyance users ride over grass, landscaped areas, and pedestrian paths. These activities not only pose risks to pedestrians but also increase maintenance costs and negatively impact the overall experience for other park users.

In response to these challenges, the City is exploring strategies to balance the benefits of e- conveyances with the need to ensure safety, accessibility, and the preservation of public property. The proposed ordinance is a proactive step toward addressing these issues through clear regulations, which are part of the City's comprehensive approach to enhancing safety and supporting the quality of life for all residents.

In California, e-bikes are regulated under the California Vehicle Code (CVC) as conventional bicycles and must obey most all of the same regulations as non -motorized bicycles. E-bikes are defined by the CVC as bicycles with an electric motor of less than 750 watts and fully operable pedals. There are three classes of e-bikes codified in section 312.5 of the CVC:
• Class 1: Pedal -assist only, with motor assistance up to 20 mph • Class 2: Pedal -assist and includes a throttle, with motorized assistance up to 20 mph • Class 3: Pedal -assist only, with motor assistance up to 28 mph (all operators must be at least 16 years old, must wear a safety helmet, and must not transport passengers) It is important to distinguish these devices from electric "off -highway motorcycles," which are becoming increasingly common. Despite their off -road -only classification, they are frequently mistaken for standard e-bikes, complicating enforcement and increasing risk. Electric off -highway motorcycles (e.g., Sur-ron, Talaria, E Ride Pro) are not classified as e-bikes because they do not have operable pedals and often exceed power limits outlined in the California Vehicle Code. As such, they are not street legal and may be subject to impoundment and citation if operated on any publicly -owned property, including but not limited to a public street, sidewalk, public right of way, park, bicycle path or trail, or any other public area open for vehicle or pedestrian travel. They are only permitted in areas designated for off -highway vehicle recreation or on private property with the owner's permission.

These vehicles are not eligible for highway registration and cannot be modified for on -road use unless they were originally manufactured and certified for dual-purpose operation.

The California Vehicle Code provides express authority to cities to enact ordinances regulating time, place and manner of bicycles and e-conveyances for the purpose of assuring the safety of pedestrians, including persons with disabilities and others using sidewalks, bike paths, pathways, trails, bike lanes, streets, roads, and highways. The proposed ordinance includes the following key provisions designed to enhance public safety and address concerns related to the use of bicycles and e-conveyances on public property:
• Prohibits riding a bicycle or e-conveyance in an unsafe manner on any publicly -owned property.

• Defines "unsafe manner" to include violations of state or local traffic laws, as well as behaviors that endanger the operator, passenger, motorists, other riders, pedestrians, or public property. Examples of unsafe behavior includes as riding against traffic, disobeying signs, carrying passengers on single -rider devices, racing, performing stunts or wheelies, or operating without proper control.
• Prohibits the use of handheld wireless devices while riding unless operating hands -free and voice -activated devices.
• Restricts riding areas, including prohibiting use on sidewalks (with limited exceptions), parks (except on designated paths), landscaped areas, fields, and in City -owned parking lots. • Clarifies rules for off -highway electric motorcycles (e.g., Sur -Ron, Talaria), which are not street legal and are prohibited on all public property unless in a designated off -highway vehicle area
• Reinforces helmet requirements, including state -mandated helmet use for operators under 18 years old and all operators and passengers of Class 3 e-bikes, regardless of age. • Reaffirms requirements to always yield to pedestrians when emerging from an alley, driveway, bicycle path, building or otherwise approaching upon a sidewalk or sidewalk area. • Requires riders to ride in single file, and not more than two abreast except on paths or parts of a roadway set aside for the exclusive use of bicycles.
• Requires all bicycles and e-conveyances to comply with equipment standards outlined in CVC Section 21201.
• Prohibits parking bicycles and e-conveyances in a manner that obstructs pedestrian pathways or violates posted parking regulations.
• Outlines enforcement protocols, including penalties and fines, and allows for the impoundment of devices operated by minors in a dangerous manner. • Holds parents or guardians accountable for violations committed by minors, including potential civil liability for property damage.

These provisions aim to promote responsible use, enhance public safety, reduce property damage, and preserve equitable access to public spaces for all community members.

The proposed ordinance is part of a broader, proactive strategy that includes infrastructure improvements to ensure all users can safely share public spaces. The City has made substantial and ongoing investments in its bicycle and pedestrian infrastructure to support safe riding and encourage active transportation. In recent years, the City has completed several key projects, including protected bike lanes, shared -use trails, and an off -road cycle track to expand its network of safe paths for cyclists and pedestrians.

Overall, the proposed ordinance is part of a comprehensive strategy to promote the safe shared use of public areas. It is aligned with a broader vision that seeks not only to regulate and enforce, but also to educate and empower residents to travel safely. Enforcement will be paired with education and awareness campaigns to help both riders and drivers better understand the rules and responsibilities of operating bicycles and e-conveyances within the community. These combined efforts address safety concerns through effective regulation while fostering a safe and active transportation environment for all.

Staff has also provided an urgency version of the Ordinance that could go into effect immediately if approved by at least a four -fifths vote.

FISCAL IMPACT:

The recommendation does not result in a fiscal impact.

Attachment(s):

1. Urgency Ordinance No. 474U

2. Ordinance No. 474
41a-
Approved by:

ATTACHMENT 1

ORDINANCE NO. 474U

AN URGENCY ORDINANCE OF THE CITY OF YUCAIPA, CALIFORNIA, ADDING CHAPTER 9.18 TO TITLE 9 OF THE YUCAIPA MUNICIPAL CODE REGULATING

THE USE OF BICYCLES AND E-CONVEYANCES IN PUBLIC AREAS
WHEREAS, the City of Yucaipa ("City") is committed to ensuring the public health, safety, and welfare of all its residents and visitors; and
WHEREAS, the City recognizes the importance of fostering sustainable transportation options while maintaining public safety and accessibility for all users of public spaces; and WHEREAS, bicycles and e-conveyances (electric bicycles, scooters, and similar devices) have become increasingly popular modes of transportation and recreation within the City; and WHEREAS, the use of bicycles and e-conveyances in public spaces presents both benefits and challenges, including safety concerns for riders, pedestrians, and motorists; and WHEREAS, the City has observed a significant increase in traffic incidents involving e-conveyance users and motor vehicles with their increasing popularity, often due to higher speeds and unsafe riding practices; and
WHEREAS, the public has expressed concerns regarding the unsafe operation of e-conveyances, including reckless riding behaviors that pose risks to riders, pedestrians, drivers, and others in public spaces; and
WHEREAS, the City aims to promote the safe use of bicycles and e-conveyances by implementing regulations that align with state law and best practices in transportation safety; and WHEREAS, the City is committed to educating its residents and visitors on the safe operation of bicycles and e-conveyances to prevent accidents and other traffic hazards and promote responsible use of these transportation modes; and
WHEREAS, the City recognizes that providing clear guidelines for the operation of bicycles and e-conveyances in public spaces will improve the quality of life for all residents and visitors.

NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF YUCAIPA, CALIFORNIA, DOES HEREBY ORDAIN AS FOLLOWS:

Section 1. Municipal Code Amendment.

Chapter 9.18, "Regulating the use of Bicycles and E-Conveyances," is hereby added to Title 9 of the Yucaipa Municipal Code to read as follows:
1 Chapter 9.18
Regulating the use of Bicycles and E-Conveyances

9.18.010 Definitions.

For the purposes of this chapter, the following words and phrases shall have the meaning set forth in this section:
"Bicycle" has the same meaning as defined in California Vehicle Code Section 231, as it may be amended from time to time.
"Bicycle Lane" has the same meaning as defined in Street and Highways Code Section 890.4, as it may be amended from time to time.
"Bicycle Path or Bicycle Trail" has the same meaning as defined in Street and Highways Code Section 890.4 and California Vehicle Code Section 231.5, as the provisions may be amended from time to time.
"City" means the City of Yucaipa.
"E-Conveyance" means any electric bicycle or e-bike, electric scooter, electrically motorized skateboard, or other device that is designed to convey one or more people and is capable of being powered by human propulsion or electric motor propulsion. "Electric Bicycle" or "E-Bike" has the same meaning as defined in California Vehicle Code Section 312.5, as it may be amended from time to time, and which, as of the date of the adoption of this section, provides that an "electric bicycle" is a bicycle equipped with fully operable pedals and an electric motor that does not exceed 750 watts, and are categorized under Class 1, Class 2, and Class 3.
"Electrically Motorized Skateboard" has the same meaning as defined in the California Vehicle Code Section 313.5, as it may be amended from time to time. "Electric Personal Assistive Mobility Device" has the same meaning as defined in California Vehicle Code Section 313, as it may be amended from time to time. "Minor" means any person under the age of eighteen.
"Narrow Width Lane" means a lane that is too narrow for a bicycle and a vehicle to travel safely side by side within the lane.
"Off -Highway Motorcycle" has the same meaning as defined in California Vehicle Code Section 436, as it may be amended from time to time.
2 "Pedestrian" has the same meaning as defined in California Vehicle Code Section 467, as it may be amended from time to time.
"Public area" means any outdoor area, public alley, parkway, public transportation path, roadway, right-of-way, sidewalk, park, trail, paseo, pathway or street that is owned, granted by easement, operated or controlled by the City.
"Unsafe manner" is defined as an act in violation of the City Municipal Code, California Vehicle Code, or any other applicable state or federal law. For purposes of this section, operation of a bicycle or e-conveyance in an "unsafe manner" also includes operating in such a way that constitutes a danger to the operator, passenger, other motorist, other rider, pedestrian, or property. "Vehicle" has the same meaning as in California Vehicle Code Section 670, as it may be amended from time to time.

9.18.020 Operation.

A. No person shall ride a bicycle or e-conveyance in an unsafe manner, as defined under Section 9.18.010, on any publicly owned property, including but not limited to a public street, sidewalk, public right of way, park, bicycle path, trail, or lane, or any other public area open for vehicle or pedestrian travel. Examples of riding in an unsafe manner include, but are not limited to, the following actions:

1. Riding on a public street or bikeway against the flow of traffic.

2. Not yielding to vehicles or pedestrians when required.

3. Operating an e-conveyance in a manner it was not designed for, including carrying passengers when not designed for carrying passengers.

4. Failing to obey posted traffic or other signs.

5. A person under the age of 18 riding without a properly fitted and fastened helmet.

6. Engaging in racing, speed, or stunt contests.

7. Carrying any package, bundle, item or article which prohibits the operator from having full control and forward visibility at all times.

8. Operating a bicycle or e-conveyance at a speed greater than is reasonable and prudent under the conditions then existing taking into account the weather, pedestrian and vehicular traffic, and the surface and width of the sidewalk or roadway.

9. Performing any acrobatics, tricks, wheelies, or stunts when pedestrians or moving vehicles are present.

B. Persons riding or operating bicycles or electric bicycles shall not ride more than two abreast, except on paths or parts of a roadway set aside for the exclusive use of bicycles.

C. Any person operating a bicycle or e-conveyance who is emerging from an alley, driveway, bicycle path, building or otherwise approaching upon a sidewalk or sidewalk area, shall 3 yield the right-of-way to all pedestrians on such sidewalk or sidewalk area, and upon entering a bicycle lane, highway, or street shall yield the right-of-way to all vehicles, bicycles, or e-conveyances on the roadway.

D. No person shall operate a bicycle or e-conveyance in any City park, except on trails that are approved for bicycle or e-conveyance use. The operation of bicycles or e-conveyances is strictly prohibited on dirt, grass, athletic fields, landscaped areas, or any other non - approved surfaces within any City park.

E. No person shall operate a bicycle or e-conveyance while holding and operating a handheld wireless telephone or an electronic wireless communications device unless the wireless telephone or electronic wireless communications device is specifically designed and configured to allow voice -operated and hands -free operation, and it is used in that manner while riding.

F. No person shall operate a bicycle or electric bicycle on any sidewalk, except:

1. A person may ride a bicycle or electric bicycle on any area designated as a driveway;

2. Any area designated as a bikeway by the City Council; or

3. To avoid a dangerous situation on the road or an obstacle.

9.18.030 Electric Off -Highway Motorcycles.

A. No person shall operate an electric off -highway motorcycle of any model (e.g., Sur -Ron, Talaria, E Ride Pro) on any publicly -owned property, including but not limited to, a public street, sidewalk, public right of way, park, bicycle path or trail, or any other public area open for vehicle or pedestrian travel.

B. Electric off -highway motorcycles are only allowed to be operated in areas specifically designated for off -highway vehicle recreation, or on private property with the express permission of the property owner. Unlike electric bicycles or mopeds, such vehicles are not eligible for highway registration and cannot be retrofitted for on -road use unless originally manufactured and certified for dual-purpose operation.

9.18.040 Equipment.

A. Every bicycle, including electric bicycles, when operated within the City, shall comply with all of the equipment requirements contained in California Vehicle Code Section 21201 or successor statute.

B. Any minor operating or riding as a passenger upon a bicycle or e-conveyance in a public area or any other place open to the public for vehicle and pedestrian travel must wear a properly fitted and fastened bicycle helmet.
4 C. Any operator or passenger of a Class 3 electric bicycle, regardless of age, must wear a properly fitted and fastened bicycle helmet pursuant to California Vehicle Code Section 21213.

9.18.050 Parking.

No person shall temporarily leave unaccompanied, abandon, or park a bicycle or e-conveyance in a manner that obstructs vehicular traffic, the pedestrian travel way of any sidewalk or pedestrian path. No person may leave unaccompanied, abandon, or park a bicycle or e-conveyance on public property in violation of any law, ordinance, or government sign prohibiting the parking of bicycles or e- conveyances at such location.

9.18.060 Enforcement.

A. Any person, including a minor, who violates the provisions of this Chapter shall be subject to penalties, fines, and enforcement procedures set forth in this code including, but not limited to, Chapter 1.12 of the Yucaipa Municipal Code.

B. Violations by Minors

1. The parent of any child, and the guardian of any ward, shall not authorize or knowingly permit any minor child or ward to violate any of the provisions of this Chapter.

2. In the case of a minor committing a violation under this Chapter, the parent or guardian may be held responsible for the violation and any associated penalties or fines.

3. If the minor's activities result in damage to public property, the City may, pursuant to California Civil Code Section 1714.1, pursue a civil complaint against the minor's parent(s) or guardian(s) having custody and control of the minor for every tort resulting in property damage.

C. Impoundment

1. In addition to all other available penalties, the Enforcement Officer shall have the authority to take immediate possession of and transport a bicycle or e-conveyance for safekeeping to the nearest City facility or City -contracted tow yard if an unaccompanied minor is found in violation of any provisions of this Chapter, and the unsafe manner in which the device was operated constitutes an immediate danger to the health and safety of the juvenile operator or to members of the public, thus constituting an exigent circumstance.

2. The impounded device shall be released by the City to the parent or legal guardian of the minor if the individual owns the device.

3. Upon impoundment of any e-conveyance device under this Chapter, the minor shall be issued a receipt. Said receipt shall state the days, business hours, location, and process by which the owner may claim the impounded device within 30 days. The citation receipt shall also explain that unclaimed devices impounded for longer than 5 30 days will be disposed of subject to an opportunity for a pre -disposal hearing pursuant to Section 1.04.130 of this code or sold at an auction in accordance with laws governing the disposal of abandoned property.

9.16.070 Exemptions.

A. First responders, as defined under California Government Code Section 8562, are exempt from this Chapter while in the performance of their duties.

B. This Chapter is not intended to apply to or otherwise restrict electric personal assistive mobility devices used in a safe manner by physically disabled persons as defined under the Americans with Disabilities Act (42 U.S.C. Section 12101 et seq.) and section 36.311 of Title 28 of the Code of Federal Regulations."
Section 2. Severability.

If any section, subsection, sentence, clause, phrase, or portion of this Ordinance is for any reason held to be invalid or unenforceable by a court of competent jurisdiction, the remaining portions of this Ordinance shall nonetheless remain in full force and effect. The City Council of the City of Yucaipa hereby declares that it would have adopted each section, subsection, sentence, clause, phrase, or portion of this Ordinance, irrespective of the fact that any one or more sections, subsections, sentences, clauses, phrases, or portions of this Ordinance be declared invalid or unenforceable.

Section 3. CEQA
The City Council finds that the adoption of this Ordinance is not subject to the California Environmental Quality Act ("CEQA") pursuant to CEQA Guidelines Section 15060(c)(2) because there is no potential that the regulations for bicycles and e- conveyances will result in a direct or reasonably foreseeable indirect physical change in the environment. In addition, this Ordinance is not subject to CEQA under the CEQA Guidelines Section 15060(c)(3) because the Ordinance is an activity that is not a project as defined in CEQA Guidelines Section 15378.

Section 4. Publication and Posting.

The Mayor shall sign this Ordinance, and the City Clerk shall certify as to the adoption and shall cause the ordinance or a summary thereof to be published in accordance with state law.

Section 5. Urgency Findings; Immediate Effect.

The City Council of the City of Yucaipa finds and declares that this Ordinance is adopted as an urgency ordinance pursuant to Government Code section 36937(b) and is necessary for the immediate preservation of the public peace, health, and safety. The facts constituting the urgency are as follows:

The City has experienced a substantial increase in the use of bicycles and e-conveyances, including electric bicycles, scooters, and similar devices, in and around public streets, sidewalks, parks, trails, and other public areas. This increase has been accompanied by observed unsafe behaviors and riding practices, including excessive speeds, riding against the flow of traffic, performing stunts and "wheelies" in active travel lanes and parking lots, operating without helmets, carrying 6 multiple riders on devices designed for a single rider, and riding through parks, landscaped areas, and pedestrian paths in a manner that endangers pedestrians and other users of public spaces and causes damage to public property. These activities present an immediate threat to the safety of riders, pedestrians, motorists, and other members of the public and create ongoing risks of collisions, injuries, and property damage.

In addition, the growing prevalence of high-powered electric off -highway motorcycles that resemble e-bikes, but are not street -legal and are not eligible for highway registration, has created confusion for users and enforcement personnel regarding where such devices may lawfully be operated, further increasing the risk of unsafe operation on City streets, sidewalks, parks, and other public areas.

Existing provisions of the Yucaipa Municipal Code do not expressly and comprehensively regulate the time, place, and manner of operation of bicycles, e-conveyances, and electric off -highway motorcycles in public areas, nor do they clearly authorize appropriate enforcement tools, including impoundment of devices operated by minors in a dangerous manner. The absence of clear local regulations and enforcement mechanisms has hindered the City's ability to promptly and effectively address unsafe conduct and protect the public.

Immediate adoption of this Ordinance will establish clear operating rules, prohibit unsafe conduct, clarify restrictions on electric off -highway motorcycles, provide for enforcement and impoundment authority, and thereby reduce the risk of accidents, injuries, and property damage in public areas. Delay in the effectiveness of these regulations would leave the public exposed to continued unsafe operation of bicycles, e-conveyances, and electric off -highway motorcycles without adequate local controls.

For these reasons, the City Council finds that the immediate effectiveness of this Ordinance is necessary to protect the public peace, health, and safety, and therefore this Ordinance shall take effect immediately upon its adoption by at least a four -fifths (4/5) vote of the City Council, as provided in Government Code section 36937(b).

PASSED, APPROVED and ADOPTED this 8th day of December, 2025.

Jon Thorp, Mayor
ATTEST: APPROVED AS TO FORM
Ana V. Sauseda, MMC Steven Graham Pacifico
Director of General Services/City Clerk City Attorney
7 ATTACHMENT 2

ORDINANCE NO. 474

AN ORDINANCE OF THE CITY OF YUCAIPA, CALIFORNIA, ADDING CHAPTER

9.18 TO TITLE 9 OF THE YUCAIPA MUNICIPAL CODE REGULATING THE USE OF

BICYCLES AND E-CONVEYANCES IN PUBLIC AREAS
WHEREAS, the City of Yucaipa ("City") is committed to ensuring the public health, safety, and welfare of all its residents and visitors; and
WHEREAS, the City recognizes the importance of fostering sustainable transportation options while maintaining public safety and accessibility for all users of public spaces; and WHEREAS, bicycles and e-conveyances (electric bicycles, scooters, and similar devices) have become increasingly popular modes of transportation and recreation within the City; and WHEREAS, the use of bicycles and e-conveyances in public spaces presents both benefits and challenges, including safety concerns for riders, pedestrians, and motorists; and WHEREAS, the City has observed a significant increase in traffic incidents involving e-conveyance users and motor vehicles with their increasing popularity, often due to higher speeds and unsafe riding practices; and
WHEREAS, the public has expressed concerns regarding the unsafe operation of e-conveyances, including reckless riding behaviors that pose risks to riders, pedestrians, drivers, and others in public spaces; and
WHEREAS, the City aims to promote the safe use of bicycles and e-conveyances by implementing regulations that align with state law and best practices in transportation safety; and WHEREAS, the City is committed to educating its residents and visitors on the safe operation of bicycles and e-conveyances to prevent accidents and other traffic hazards and promote responsible use of these transportation modes; and
WHEREAS, the City recognizes that providing clear guidelines for the operation of bicycles and e-conveyances in public spaces will improve the quality of life for all residents and visitors.