TO: ADAM PIRRIE, CITY MANAGER
FROM: MELISSA VOLLARO, RECREATION AND HUMAN SERVICES DIRECTOR
DATE: MARCH 25, 2025
Reviewed by:
City Manager: AP
SUBJECT:
Title
ORDINANCE CODIFYING TRAIL ETIQUETTE STANDARDS AND REGULATING THE USE OF ELECTRIC BICYCLES IN THE CLAREMONT HILLS WILDERNESS PARK (FUNDING SOURCE: WILDERNESS PARK PARKING LOT FUND)
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SUMMARY
Electric bicycles, or e-bikes, have become an increasingly popular method of individual transportation. A change in state law in 2023 permitted e-bikes to be operated on trails by default, unless a local agency passed an ordinance restricting their use. Over the past year, staff have received a significant number of concerns regarding the safe use of these devices in parks and on trails. In response, the City Council directed staff to research potential options to regulate the use of e-bikes in the Claremont Hills Wilderness Park (CHWP) and encourage visitors to utilize proper trail etiquette.
In August of 2024, staff released a survey for park visitors and the community to provide their feedback on the use of e-bikes. Additionally, staff implemented a “Share the Trail” information campaign to encourage respectful and safe use of the CHWP by all visitors. Staff also researched the policies of neighboring trail systems and have utilized this information in conjunction with the survey results to develop a proposed ordinance that would modify Title 11 of the Claremont Municipal Code to regulate the use of e-bikes and codify trail etiquette standards in the CHWP.
RECOMMENDATION
Recommended Action
Staff recommends the City Council introduce for a first reading and reading be by title only AN ORDINANCE OF THE CITY OF CLAREMONT AMENDING TITLE 11 OF THE CLAREMONT MUNICIPAL CODE TO ADOPT TRAIL ETIQUETTE STANDARDS AND RESTRICT THE USE OF MOTORIZED DEVICES IN THE CLAREMONT HILLS WILDERNESS PARK.
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ALTERNATIVES TO RECOMMENDATION
In addition to the staff recommendation, there are the following alternatives:
A. Request staff to make changes to the proposed Ordinance.
B. Not adopt the Ordinance.
C. Request additional information from staff.
FINANCIAL REVIEW
The staff cost to conduct the survey and prepare this report is estimated at $1,837 and is included in the operating budget of the Recreation and Human Services Department. Should an ordinance be adopted by the City Council, the cost to purchase and install temporary signage is estimated at $3,500. New, permanent signage would be incorporated into a concurrent project, updating all signage in the CHWP.
ANALYSIS
Background
The Claremont Hills Wilderness Park is one of the premier destinations for outdoor recreation in the Pomona Valley, welcoming over 450,000 visitors per year, as determined by the 2023 CHWP Visitor Intercept Survey. Over the past several years, e-bikes have greatly increased in popularity while technological advances continue to make these devices more affordable.
Prior to 2023, under the California Vehicle Code, Class 1 and 2 e-bikes were permitted to operate on trails unless specifically prohibited by local law. On January 1, 2023, AB 1909 took effect, which eliminated all e-bike restrictions on trails and permitted any class of e-bike by default, unless a local agency passed an ordinance to prohibit some or all classes of e-bikes. Since this time, City staff have received an increasing number of concerns from park visitors about the use of e-bikes. Therefore, the City Council directed staff to research potential options to regulate the use of e-bikes in the CHWP and encourage visitors to utilize proper trail etiquette. The Claremont Hills Wilderness Park Master Plan states “Inclusive and managed public access is provided as secondary to preserving the natural environment and limiting the impacts to surrounding properties. The CHWP allows for passive recreational opportunities that connect people to nature and promote healthy lifestyles.”
In response to this directive, staff has prepared a draft ordinance based on data collected from survey respondents and citizen contacts. Additionally, staff developed the “Share the Trail” campaign to educate park visitors on proper trail etiquette, which was implemented in July of 2024 and has assisted in mitigating concerns.
Defining an E-Bike
The California Vehicle Code (CVC) section 312.5 currently defines an e-bicycle as "a bicycle equipped with fully operable pedals and an electric motor of less than 750 watts." CVC section 312.5 further defines specific classifications of e-bikes as follows:
• A “class 1 electric bicycle,” or “low-speed pedal-assisted electric bicycle,” is a bicycle equipped with a motor that provides assistance only when the rider is pedaling, that is not capable of exclusively propelling the bicycle, except as provided in paragraph (4), that ceases to provide assistance when the bicycle reaches the speed of 20 miles per hour, and that is not capable of providing assistance to reach speeds greater than 20 miles per hour.
• A “class 2 electric bicycle,” or “low-speed throttle-assisted electric bicycle,” is a bicycle equipped with a motor that may be used exclusively to propel the bicycle, and that is not capable of providing assistance when the bicycle reaches the speed of 20 miles per hour.
• A “class 3 electric bicycle,” or “speed pedal-assisted electric bicycle,” is a bicycle equipped with a motor that provides assistance only when the rider is pedaling, that is not capable of exclusively propelling the bicycle, except as provided in paragraph (4), and that ceases to provide assistance when the bicycle reaches the speed of 28 miles per hour, and equipped with a speedometer.
• A class 1 or class 3 electric bicycle may have start assistance or a walk mode that propels the electric bicycle on motor power alone, up to a maximum speed of 3.7 miles per hour.
Should CVC section 312.5 be modified in the future to change the definition of an electric bicycle from those above, the definitions above will prevail unless the City modifies these definitions through a subsequent ordinance.
There are also several common misconceptions regarding conveyance devices that are similar in nature, but do not legally qualify as e-bikes. The following devices are not considered e-bikes and are defined as motor vehicles per the State of California Department of Motor Vehicles. Claremont Municipal Code 11.10.030 prohibits the operation of motor vehicles in the Claremont Hills Wilderness Park.
• Motorcycles: A motorcycle is a motor vehicle with a seat or saddle for the rider and is designed to travel on not more than three wheels.
• Motor-Driven Cycles: A motor-driven cycle is a motorcycle with less than a 150 cc motor size.
• Motorized Scooters: A motorized scooter is defined as any two-wheeled “device” with a motor, handlebars, and a floorboard for standing on when riding.
• Mopeds: A motorized bicycle or moped is a two or three-wheeled device, capable of no more than 30 miles per hour (mph) on level ground, and equipped with:
o Fully operative pedals for human propulsion.
o A motor producing less than four gross brake horsepower and an automatic transmission.
o No pedals if powered solely by electrical energy.
The proposed ordinance further defines conveyance devices and vehicles that would be prohibited in the CHWP, specifically stating:
“B. No person shall operate an unauthorized motor vehicle, including, but not limited to four-wheel drive vehicles, motorcycles, motor bikes, motor dirt bikes, motorized scooters, all-terrain vehicles, off highway vehicles, or any other motorized vehicles or conveyance device within park boundaries or in parking lots, unless a permit has been issued by the Director of Recreation and Human Services or his or her designee.”
“C. No person shall operate or drive any electric or combustible motorized skateboard, scooter, dirt bike, mini bike, mini motor bike, mini motorcycle, go-kart, go-ped, mo-ped, all-terrain-vehicle, quad runner, dune buggy or any similar electric or combustible motorized wheeled conveyance, except for electric bicycles as defined in section 11.10.080, within park boundaries or parking lots unless a permit has been issued by the Director of Recreation and Human Services or his or her designee.”
2024 E-Bike Survey and Feedback from Community Groups
In August of 2024, staff solicited feedback on the use of e-bikes in the CHWP from park visitors and residents through an online survey. This survey was advertised through posters at all entrances to the CHWP, social media, the City Manager’s weekly update, and the CHWP subscription-based email list. The survey was also circulated on social media in several hiking and mountain biking interest groups. A copy of the survey is included as Attachment E to this report. There were 2,546 survey responses received, and a summary of those responses is provided below.
• 47% of respondents indicated they would prefer only manual pedal / non-motorized bicycles be permitted.
• 30% indicated they would prefer Class 1 e-bikes to be permitted.
• 10% indicated they would prefer Class 1 & 2 e-bikes to be permitted.
• 13% indicated they would prefer all classes of e-bikes to be permitted.
It can be deduced from this survey that approximately 47% of respondents favored a prohibition on motorized cycles, while 53% of respondents favored allowing at least some classification of e-bike. However, it should be noted that this survey is a general polling and is not considered statistically valid.
Out of the 2,546 responses received, a total of 1,087 responses included additional comments. These comments have been summarized below.
• 55% (595) of comments received discussed the issue of safety. 475 comments convey clear opposition to e-bikes due to safety concerns, specifically:
o Speed: 300 comments discuss bike speeds as a danger.
§ 130 comments address the speed of all bikes generally.
§ 170 comments voice concerns about the faster speed of e-bikes.
o Mixed Use/Shared Trails: For 266 respondents, the concern is that shared/mixed use trails aren't safe, including the sentiment that it's too crowded to safely allow e-bikes/bikes on trails.
§ 106 comments raise safety concerns around sharing trails with any/all bikes.
§ 160 comments are concerned with sharing trails with e-bikes.
o User Behaviors: 114 comments received are concerned with unsafe rider behaviors, including lack of etiquette/control/communication.
§ 56 comments address behaviors of all/any bikers, not only e-bikes.
o Approach Warnings: 73 comments note safety concerns with approaching bikes and no notice/warning (such as bells or voice calls).
o Rider Experience: 46 comments say e-bikes enable less experienced riders to use trails, which makes the trails less safe.
o E-Bike Weight and Power: 19 comments were received stating that respondents feel e-bikes are riskier due to their added weight/power and that they are more difficult to control/could do more damage.
• 12% (124) of comments on the topic of safety are in favor of e-bikes in some manner.
o User Behavior/Speed: 95 comments note that safety is a function of individual behavior and that riding responsibly, including maintaining safe speeds, is the responsibility of the operator.
o Mixed Use/Shared Trails: 38 comments discuss ideas for safely managing mixed use/shared trails through trail management (for example, separate times or trails for bikes)
o Bike Classification and Rider Qualification: 40 comments encourage regulation of e-bikes based on rider skill level or need.
Outside of safety, other topics raised by survey participants that oppose e-bikes include:
• Patron Experience: 152 comments indicate ways respondents feel e-bikes detract from the wilderness experience and encourage use contrary to enjoyment/protection of the natural environment, such as:
o Trails being designed for manual recreation.
o High speed traffic degrading the peace of being in nature.
o Tires kicking up dirt/dust and rocks.
• Impact on Environment and Wildlife: 25 comments voice concerns about damage to the environment, trails, and wildlife, including:
o Negative impacts wildlife and inhibits natural behaviors.
o Additional damage/erosion to trails.
o Increased fire risk from batteries and motors.
Outside of safety, the topic raised most by respondents in favor of e-bikes is accessibility.
• 210 comments state that e-bikes are critical/essential for portions of the population to exercise, maintain healthy/outdoor lifestyles, and enjoy our parks and trails.
Both proponents and opponents of e-bikes agreed that there is a need for structure and additional safety measures with use of bikes (both manual and electric) in the CHWP. Commenters raised the following ideas for consideration when managing trail use:
• Require bells on all bikes
• Increase signage, traffic flow reminders (stay to the right), and trail etiquette
• Separate/designated trails for bikes and/or limit/designate specific times for bike use.
• Bike education and safety training
• Limit group size or the number of riders
• Have consistency with local and state trail system
• Restrict certain classes of e-bike
Many of the above recommendations have been incorporated into the proposed ordinance. Additionally, feedback was received from the Friends of the Claremont Hills Wilderness Park and Claremont Wildlands Conservancy. Both groups have a vested interest in the success of the CHWP, and their letters are included as Attachments C and D to this report.
Neighboring Trail System E-Bike Regulations
During the development of this ordinance, staff researched regulations on e-bike use for nearby trails and park systems of a similar nature to the CHWP, such as County of Los Angeles Regional Parks, Chino Hills State Park, and Orange County Parks.
It should be noted that Marshall Canyon Regional Park, operated by the County of Los Angeles, is the only trail system that connects directly to the CHWP’s trail network. As shown above, the County of Los Angeles does not permit e-bikes on their trails at this time.
Accessibility Requirements and the Americans with Disabilities Act
Many respondents to the survey indicated that e-bikes play a pivotal role in increasing accessibility for those who may not otherwise be able to bike in the CHWP. The City recognizes the use of e-bikes as Other Power-Driven Mobility Devices (OPDMD) in areas where they can be operated safely, without posing substantial risk of serious harm to natural or cultural resources. OPDMDs are considered to be any mobility device powered by batteries, fuel, or other engines-whether or not designed primarily for use by individuals with mobility disabilities-that is used by individuals with mobility disabilities for the purpose of locomotion, but that is not a wheelchair. Use of these devices is restricted to people with a qualifying disability as defined by Title II of the Americans with Disabilities Act (ADA) (28 CFR Part 35 § 35.108). For the purposes of OPDMD use, a qualifying disability is any physical impairment that substantially limits a person's mobility. All users of OPDMDs must provide credible assurance that the mobility device is required for locomotion because of their disability. Regardless of any approved ordinance, the City must comply with the ADA.
For those who wish to utilize an e-bike as an OPDMD, an administrative process will be provided for those individuals to provide the required documents and obtain a permit at no charge.
Enforcement Considerations
Should the proposed ordinance be adopted by the City Council, the provisions will be adopted into Chapter 11 of the Claremont Municipal Code, “Public Parks and Facilities”, and any violation of said Chapter shall be punishable as a misdemeanor unless the citing officer or the prosecuting attorney determines that it would be in the interests of justice to cite or prosecute the violation as an infraction. Enforcement operations would primarily be conducted by the Claremont Park Ranger unit.
The City’s Park Rangers employ various methods but focus their efforts on gaining compliance through education and advisement. However, administrative citations can be issued for violations. Additionally, the proposed ordinances incorporate language that requires individuals in violation of the Chapter to vacate the park at the direction of law enforcement or Recreation and Human Services staff.
There are several challenges regarding enforcement. For example:
• It can be difficult to distinguish between certain e-bikes and regular bicycles.
• If only certain classes of e-bikes were permitted, enforcement personnel would need to inspect any bicycle suspected to be in violation to ascertain its class from the manufacturer’s sticker.
• Bicycles and e-bikes can be modified or tampered with to increase speed or bypass the requirement to pedal, although doing so is a violation of California Vehicle Code 24016.
• It is not feasible to conduct traffic stops of bicycles inside the CHWP.
• Enforcement staff is limited.
However, even in consideration of these challenges, staff recommend that the proposed ordinance be adopted to mitigate current concerns, as it is expected the majority of individuals will voluntarily comply, as evidenced by the “Share the Trail” campaign.
LEGAL REVIEW
The City Attorney has reviewed the proposed ordinance and approved it as to form.
RELATIONSHIP TO CITY PLANNING DOCUMENTS
Staff has evaluated the agenda item in relationship to the City’s strategic and visioning documents and finds that it applies to the following City Planning Documents: Claremont Hills Wilderness Park Master Plan, and the 2024-26 budget.
CEQA REVIEW
This item is not subject to environmental review under the California Environmental Quality Act (CEQA).
COMMISSION REVIEW
At its March 12, 2025, special meeting, the Community and Human Services Commission voted to recommend to the City Council to adopt the proposed Ordinance prohibiting the use of Class 2 and Class 3 e-bikes in the Claremont Hills Wilderness Park. The excerpt from the Community and Human Services Commission Special Meeting Minutes are included as Attachment F.
PUBLIC NOTICE PROCESS
The agenda and staff report for this item have been posted on the City website and distributed to interested parties. If you desire a copy, please contact the City Clerk’s Office.
Submitted by: Prepared by:
Melissa Vollaro Eric Ey
Recreation and Human Services Director Recreation and Human Services Manager
Attachments:
A - Proposed Ordinance Prohibiting the Use of Class 2 and 3 E-Bikes in the CHWP
B - Proposed Changes to Title 11 of the Claremont Municipal Code
C - Letter from the Friends of the Claremont Hills Wilderness Park
D - Letter from the Claremont Wildlands Conservancy
E - 2024 E-Bike Survey Copy
F - Excerpt from the March 12, 2025, Special Meeting of the Community and Human Services Commission