Shared micromobility within the UK

"As part of the Local Government Association’s (LGA’s) ongoing work to support local transport improvement and in particular decarbonisation, the LGA’s Economy, Environment, Housing and Transport Board are keen to explore new and developing modes of transport and business models that could improve accessibility and sustainability.

Many local authorities have already taken significant steps developing shared micromobility schemes, covering the rental of a growing class of small, light and zero emission powered vehicles capable of speed up to 15 miles per hour, such as e-bikes, e-scooters and cargo bikes. There remains huge potential for expansion but a clear need to get it right – especially in terms of public safety and support - by learning from colleagues and best practice here in the UK and around the world.

Refreshed Local Transport Plans will likely determine future funding, and new guidance is expected to require consideration of, and even provision for, higher uptake of new mobility options like shared e-scooters, e-bikes and cargo bikes. This report on shared micromobility aims to colleagues as they look to start or continue their plans on new mobility."

Cllr David Renard
Chairman
Economy, Environment, Housing and Transport Board
Local Government Association

Many local authorities have already taken significant steps developing shared micromobility schemes...There remains huge potential for expansion but a clear need to get it right – especially in terms of public safety and support - by learning from colleagues and best practice here in the UK and around the world. 

Micromobility encompasses a wide range of small lightweight vehicles including bikes/e-bikes, e-scooters and cargo bikes. The rise of different micromobility modes is evident across the world with e-bikes and e-scooters being the most prominent. A 2022 micromobility market report put the global market value of micromobility to be about £37 billion in 2020, with expectations to reach over £169 billion by 2030. Shared micromobility schemes have been introduced in many cities across the world including in the UK.

Shared micromobility can provide access to an e-scooter, bike/e-bike or cargo bike without the need to own one, enabling flexible, affordable and environmentally friendly transportation. Shared micromobility provides short-term access to vehicles for trips within a defined operating area. Vehicles are either booked via an app or at physical kiosks/pillars typically located next to where the vehicles are parked. Users pay on a trip-by-trip or a subscription basis.

Shared micromobility can be an important contributor to transport decarbonisation encouraging mode shift from private cars, improving air quality, and reducing congestion. This is particularly pertinent with the UK Government committed to reducing carbon emissions to net zero by 2050 and with many local authorities declaring a climate emergency. Furthermore, it is understood that the Government’s forthcoming updated Local Transport Plan (LTP) guidance will recognise the need to respond to climate and environmental challenges alongside new transport technologies. In this context, shared micromobility is, therefore, important as a relatively new mode of transport that could support addressing climate change challenges.

Whilst there are different micromobility vehicles available in the market, this report is focused on:

• shared bikes/electric bikes (e-bikes)
• shared electric scooters (e-scooters)
• shared cargo bikes/electric cargo bike (e-cargo bikes).

There are different shared micromobility operating models which could be implemented including (in this context, ‘publicly’ owned or operated refers to a council or transport authority):

• Publicly owned and operated vehicles (there are limited examples of this operating model with none in the UK at the moment; however, Nice bike share in Minnesota, U.S., previously fell under this model but now is run by a private company).
• Publicly owned and operated by a private operator. Operations may be subsidised by the transport authority (Santander cycle hire scheme in London).
• Privately owned and operated: a licence/permission to operate is granted by the relevant authority (combined, local or transport) to one or more private operators who provide and operate vehicles at their own cost but are typically closely monitored by the transport authority (a rental e-scooter trial in London).

Parking models

There are also different parking models available, which can be categorised as either station based or free floating.

Station based:

• physical docking stations: micromobility vehicles must be parked at fixed docking stations
• hub-based stations: micromobility vehicles must be parked in parking bays with light infrastructure such as parking racks
• geofenced and marked parking bays: geofencing refers to location enabled technology, typically via GPS, which can create virtual geographic boundaries that restricts where shared micromobility vehicles can operate. With e-scooters, sometimes this is introduced to reduce the speed of the vehicle. In this case, journeys cannot end until the e-scooter or e-bike is parked in a designated parking bay (painted markings and signage) at the end of their trip.

Free floating:

• free floating systems: micromobility vehicles can be parked anywhere within the operating area.

There are benefits and challenges associated with each of these parking models both in terms of cost, user experience, maintenance, and fleet distribution, which is explored in more detail later in the report.

The global shared micromobility market has grown significantly over the past five years, particularly with the rise of shared e-scooter schemes. According to a North American Bikeshare and Scootershare Association 2021 report at least 298 cities in North America had a shared e-scooter or bike share scheme and 50 per cent of cities with bike share schemes had e-scooter fleets. A 2021 Autonomy shared micromobility report found shared micromobility schemes (bikes, e-bikes and e-scooters) available in more than 420 cities and towns in Europe, spreading across 35 countries with more than 150 different operators.

Shared micromobility companies in the UK include but are not limited to Beryl, Serco, Lime, Dott, Tier, Voi, Ginger, Neuron, and Hourbike. The CoMoUK Annual Bike Share report found in the UK, there are currently:

• Thirty-nine bike share schemes with around 1.8 million members – defined as anyone who has used the bikes in the last 12 months. It is worth noting, these are on-street self-service schemes. There are, however, many others including smaller closed/community run schemes.
• Thirty-one shared e-scooter trial areas in England launched by the Department for Transport (DfT).
• E-cargo bike share schemes are emerging with operations launched in Manchester and London.

To successfully develop shared micromobility schemes, approach to procurement, micromobility parking, and infrastructure, provision needs careful consideration to ensure the benefits of shared micromobility are fully realised.

This report provides an overview of the shared micromobility sector and is structured as follows:

• overview of the current legal position of micromobility modes in the UK, noting the current differences between private and shared modes (e-scooters)
• summary of the different shared micromobility parking models
• summary of the different shared micromobility operating models (how a scheme is managed)
• summary of shared micromobility benefits and how shared micromobility schemes can contribute to Local Transport Plans (LTPs) and transport decarbonisation
• considerations around implementation of shared micromobility schemes including areas such as procurement and supporting infrastructure
• a frequently asked questions (FAQs) section. 

Introduction

The current UK micromobility regulation has not caught up with the speed of development of new types of micromobility vehicles. However, the UK Government plans to introduce a Transport Bill to provide greater regulatory clarity on new forms of micromobility vehicles including e-scooters and other types of light electric vehicles.  

The following section provides an overview on the relevant UK micromobility regulation. The primary focus for this section is on e-scooters and e-bikes; pedal bike regulation is not explored in detail given this has been well established for many years. It is worth noting that cargo bikes are either governed by e-bike or regular bike regulation depending on the use of electrical assistance.

E-scooters

E-scooters come under the category of ‘powered transporters’ in the UK. The government defines powered transporters as a variety of novel and emerging personal transport devices which are powered by a motor including e-scooters. E-scooters are classified as motor vehicles under the Road Traffic Act 1988, which means the rules that apply to motor vehicles, also apply to e-scooters. The Road Traffic Act 1988 defines a ‘motor vehicle’ as ‘any mechanically propelled vehicle intended or adapted for use on roads. E-scooter users are, therefore, required to have a driving licence, insurance, and tax.

Private e-scooters in the UK are de-facto illegal to use on public roads given the challenge in meeting tax, insurance, vehicle standards and driving licence requirements. However, it is legal to use e-scooters on private land with the permission of the landowner. Although it is not illegal to sell powered transporters such as e-scooters, responsible vendors should provide customers with accurate information regarding the legal restrictions and terms of their use.

In July 2020, the DfT fast tracked regulations allowing trials of rental e-scooters to support a green recovery from the COVID-19 pandemic and gather evidence to help inform future policy and regulation. Rental e-scooters need to be covered by an insurance policy (for users and the vehicles), users are required to have a valid driving licence (provisional licences are also permitted) and helmets are recommended but not mandatory. E-scooters are allowed to be used on the same road spaces as bikes and Electrically Assisted Pedal Cycles (EAPCs) (both on the road and in cycle lanes).

As part of the trials, the DfT have defined a sub-category for an e-scooter being a motor vehicle that:

• is fitted with an electric motor with a maximum continuous power rating of 500 watts and is not fitted with pedals that are capable of propelling the vehicle
• is designed to carry no more than one person
• has a maximum speed not exceeding 15.5 miles per hour
• has two wheels, one front and one rear, aligned along the direction of travel
• has a mass including the battery but excluding the rider not exceeding 55 kilograms
• has means of directional control via the use of handlebars that are mechanically linked to the steered wheel
• has means of controlling the speed via hand controls and a power control that defaults to the off position.

DfT trial requirements

All local authorities were asked to submit proposals which could meet the DfT’s requirements. Operators are required to have appropriate insurance in place and arrangements for central data access for third party evaluation. In addition, Traffic Regulation Orders (TROs) are required to be updated by councils to allow e-scooter use on bike lanes and tracks alongside amendments to signage and road markings. Safety issues were also considered and addressed for the trials including vehicle design and maintenance, a mandatory minimum level of training for new users and helmet use.

Additional trial requirements introduced by the DfT in April 2022 included improvements around general safety such as lower speed limits for new riders, parking incentives, penalties and improved geofencing.

Non-regulatory e-scooter trial controls

Local authorities have been able to add additional requirements such as the duration of the trial period, total number of e-scooters allowed in the scheme, the areas where e-scooters can be parked and the application of geofencing to limit or slow vehicles in specific areas.

There are currently 31 regions across England holding the trials, and councils can extend the trials until the end of 2024.

E-bikes

E-bikes have their own regulatory requirements. E-bikes which meet the EAPC categorisation must have pedals which assist the rider when pedalling through a small electric motor (pedelec). EAPC requirements include:

• the bike must be fitted with pedals that can propel it
• the bike must show either the battery voltage or maximum speed on the bike
• the bike must show the power output or the manufacturer of the motor on the bike
• maximum continuous rated power must not exceed 250 watts
• electrical assistance must be cut off when the vehicle reaches 15.5 miles per hour
• users must be aged 14 and over to ride an e-bike.

If the bike meets the EAPC requirements it is classed as a normal pedal bike which means users can ride it in bike lanes and paths and anywhere else pedal bikes are allowed. In addition, EAPCs do not require users to have a driving licence, registration, be taxed or insured. All shared e-bikes meet the EAPC classification.

If the EAPC requirements are not fulfilled, then the vehicle is defined as a motor vehicle on UK roads. Electric bikes which fall outside of the EAPC requirements require type approval. Type approval is the process whereby the UK Government ensure that a vehicle meets specified performance standards. The Vehicle Certification Agency is responsible for issuing the UK type approvals on behalf of the Secretary of State for Transport. Type approval should be completed by the manufacturer or importer before purchase. The vehicle should have a plate showing its type approval number. In addition, the user will need to have a driving licence, insurance and wear a helmet.

For electric bikes, type approval must be sought if either: 

• it can be propelled without pedalling (a ‘twist and go’ EAPC); and
• it does not meet the EAPC rules.

Twist and go e-bikes typically include a throttle or similar control that provide electric assistance without the use of pedals. A recent change in UK law to bring it in line with European law was made in 2016 which allows some twist and go e-bikes to fall under the EAPC classification without a need for type approval. The change in the law stated that any EAPC produced since 2016, with a throttle feature, does not require type approval if the throttle feature is limited to 3.7 miles per hour. Any e-bikes with a throttle that provides assistance above this, without the rider pedalling, are classed as motorcycles or mopeds. It should be noted that any twist and go e-bike that was manufactured, imported, and sold prior to 2016 is not subject to these restrictions.

The same requirements apply to e-cargo bikes in terms of adhering to the EAPC rules.

Future regulation

The Queen’s speech on 10 May 2022 announced the UK Government’s intention to introduce legislation on the future of transport in the new parliamentary session as part of the Transport Bill. The Government intends to create a new, low-speed, zero-emission vehicle (LZEV) category which would be different from the cycle and motor vehicle categories. It is understood that new powers, to be set out in the Transport Bill, would allow the Government to decide which vehicles fall into this new category in the future and establish how the vehicles should be regulated. In addition, the bill will likely provide new powers for local transport authorities to manage rental operations for both shared e-scooters and e-bikes.

There are different parking models available which can be used for all types of shared micromobility vehicles (e-bikes, e-scooters, cargo bikes). The shared micromobility market is constantly evolving with different parking models more prevalent for certain modes. Additionally, a hybrid of the different parking options can be introduced by a council.

Table 1 presents a summary of parking models available in the UK with a brief description, and considerations of their respective benefits and challenges.

There are different types of shared micromobility operating models available which can be applied across different vehicle types, eg e-bike, e-scooters, cargo bikes. The shared micromobility market is constantly evolving with different operating models more prevalent in certain geographies.  

Table 2 presents a summary of key operating models in the UK highlighting their associated benefits and challenges. 

Shared e-scooters: benefits:

• Encouraging mode shift from private cars: a survey conducted as part of the e-scooter trial in Birmingham found that 31 per cent of respondents would have used a car had e-scooters not been available (2021). The results from the Solent e-scooter trial results revealed that 283,000 car and taxi trips were replaced by e-scooter trips promoting mode shift. The average trip duration was between 15 and 20 minutes, highlighting the potential for e-scooters to replace short car journeys. The TfL e-scooter trial has reported that over 180,000 people have used the scheme, with the most popular hour to ride an e-scooter being between 6-7pm, suggesting the scheme is popular with commuters. A 2022 Voi/Volterra study estimated that their shared e-scooter operations have removed four million independent car trips from the road in the UK since their operations began in October 2020 through to April 2022.

• Increased public transport accessibility: shared e-scooters have the potential to support first and last mile trips to key transport hubs and stations, particularly as an alternative transport mode in areas with limited public transport accessibility. For example, a 2021 Universty of Salford e-scooter trial report found that 28 per cent of users stated that e-scooters can provide an alternative mode of transport where public transport accessibility might be low. E-scooter journey distances typically range from one to five miles making them an attractive transport option for first and last mile connections.

• More efficient urban transport and reduction in carbon emissions: the report also found travelling by e-scooters could be quicker than in a private car due to the ability to avoid traffic use of cycle lanes and short cuts and ability to park close to the location. E-scooters’ compact design allows for more efficient use of road space supporting reduction of congestion in urban areas, leading to reduced greenhouse gas emissions and improved air quality. E-scooters also produce no tailpipe emissions making it a greener transport mode compared to cars. The Solent e-scooter trial has reported that since the trial began in 2020 there has been a total CO2 equivalent saving of 126 tonnes up to January 2022. It should be noted that the methodology for calculating the carbon savings from e-scooters and, more generally, across all electric transport is still emerging. The Voi/Volterra study estimated that if their operations were made permanent, it could result in up to £64m of decongestion benefits.

• Social inclusion: e-scooters enhance social inclusion through providing access to work and education, particularly for people who might have limited public transport options, or for people who might struggle to walk and cycle for longer distances. In 2021, the Salford e-scooter trail was extended when 130,000 rides were completed. In addition, many e-scooter operators In the UK offer discounts to NHS and emergency workers and students. For example, Lime established the Lime Access scheme to provide discounted rides for emergency workers, concessionary travel pass holders and individuals with low incomes. At a wider scale, Voi estimate that their existing trial areas could provide £53 million of socio-economic benefits in 2022 alone. 

• Cheaper transport alternative: a 2020 Cenex report found shared e-scooters can provide a cheaper transport alternative to the private car. Unlike with private cars which have high capital and maintenance costs, shared e-scooters can be hired at a relatively low cost, with no capital or maintenance outlay. A Dott gender gap study noted how a reduction in price or tailored tariffs are of considerable importance for making e-scooters a more inclusive and attractive mode, thus, if priced appropriately, e-scooters could have significant potential in providing a cheaper alternative to the private car. 

Shared e-bikes: benefits: 

• Encouraging mode shift from private cars: e-bikes have the potential to support modeshift from private cars. The CoMoUK Annual Bike Share report found that more people use e-bikes to replace car trips at 34 per cent compared to 24 per cent for regular cyclists. The survey also identified that 53 per cent of respondents said they would have made their last trip by car or taxi if bike share had not been available, highlighting the potential for modeshift. The DfT’s Shared Electric Bike Programme report also found that 31 per cent of participants used bike share for commuting at least once a week, pointing at the potential for e-scooters to replace commuting journeys by car.
• Increased public transport accessibility: the research by CoMoUK highlighted that suburban areas have the greatest opportunity for e-bike take-up - connecting suburban areas to city/town centres. The CoMoUK Annual Bike Share report  revealed that 46 per cent of respondents use e-bike share because it makes their journeys easier and 26 per cent state they use e-bike share because they do not have access to public transport.
• Reduction in carbon emissions: e-bikes are electric, so they do not emit any tailpipe emissions and associated harmful chemicals affecting health and the environment. The CoMoUK Annual Bike Share report stated that there is an average reduction of about 2.3 car miles and 1kg of CO₂ emissions every week per e-bike share user. A study by the University of Leeds found that e-bikes have the capability to cut CO₂ emissions in England by up to 50 per cent (about 30 million tonnes per year).
• Serving the needs of different user groups: e-bikes widen the appeal of cycling, particularly for older people and individuals with disabilities, due to their assistive nature. The CoMoUK Annual Bike Share report found that 45 per cent of respondents use e-bikes because they help with riding up hills, 42 per cent ride because e-bikes reduce fatigue or getting sweaty and 39 per cent of respondents use e-bikes to travel longer distances. There was also no significant age difference between the e-bike riders – indicating that e-bikes can serve wider demographics.
• Improved health/fitness: the CoMoUK Annual Bike Share report showed that for many respondents e-bikes help overcome health difficulties or low fitness levels. This highlights that e-bikes provide an opportunity for wider participation in sustainable transport. Cycling also has a proven benefit for mental health, wellbeing and sleep quality. For example, the DfT’s Shared Electric Bike Programme report found that of those using an e-bike, 58 per cent felt happier and 41 per cent healthier.

Shared cargo bikes/e-cargo bikes

Cargo bikes are specifically designed to carry a load and vary in their design and weight carrying capacity: smaller models can carry loads of 100kg and larger models up to 300kg. The design of cargo bikes varies between carrying a front or rear load and having an open or a closed carrier.

Shared cargo bikes/e-cargo can be used by both individuals and businesses to move goods or people. The CoMoUK Annual Bike Share Survey reported that 67 per cent of respondents supported the introduction of e-cargo bikes for carrying shopping or other loads, whilst 21 per cent of respondents showed interest in e-cargo bikes for carrying children.

London borough of Camden is piloting an Ourbike Community Cargo Bike Share Scheme provided by Peddle My Wheels allowing residents and businesses to hire a cargo bike by the hour. If the pilot is successful, Camden hopes to expand the scheme to more locations. Another example of shared cargo bike scheme is the Hackney shared cargo bike scheme in London, operated by Beryl, which has recently launched eight e-cargo bikes in Hackney. The bikes are available for hire on the spot or can be reserved via the beryl app. The bikes cost £1.50 to unlock and have an 80 kilogram carry limit.

The first Amazon micromobility hub in Hackney for a fleet of e-cargo bikes which will replace many of Amazon’s van deliveries in London. Along with Amazons’ existing fleet of electric vehicles, the new e-cargo bike micromobility hub will contribute to five million deliveries a year across a 10th of London’s ultra-low emission zone postcode districts.

Benefits:

• Reduction in carbon emissions: the 2021 Urban Transport Group report found that e-cargo bikes can cut carbon emissions by 90 per cent compared to diesel vans, and 33 per cent when compared to electric vans (for business use). This highlights the potential for cargo bikes to improve air quality in cities and towns, particularly in congested areas by transporting passengers and cargo.
• More efficient urban transport:  a 2021 Possible report on the benefits on e-cargo bikes in London found e-cargo bikes can deliver goods/cargo 60 per cent faster than vans in city centres. A 2016 Bikeplus Carplus report featuring Outspoken Cycles found in Cambridge and Norwich that e-cargo bike riders were 5.5 per cent quicker compared to car, highlighting the modeshift potential of cargo bikes and their convenience. Cargo bikes are also a more space efficient mode for carrying cargo with the bikes able to take shorter, faster routes through the use of cycle and bus lanes. A 2019 Bicycle Association report found cargo bikes can also be easier to park compared to vans given their shape and size.
• Reduced costs: in an urban context, e-cargo bikes can be cost efficient for businesses by providing a low carbon freight solution which solves the last mile transport issue. A 2018 Sustrans and Royal Borough of Greenwich e-cargo bike trial for a local butcher shop, found the benefits of the trial included yearly fuel savings of £829 alongside increased fitness levels of staff and faster deliveries.
• Serve wider demographics: in rural/urban context cargo bikes can be used for transporting goods/shopping as well as children. Bunch Bikes, a U.S e-cargo bike brand found the front-loading design, built in seats and seatbelts allow for a more sustainable and alternative option to transport children and other passengers. E-bike share schemes, like those in Inverness, have started to introduce mixed fleets be used for carrying shopping or transporting children.

The following section provides an overview of key considerations for councils. Given similarity in some of the considerations, all three modes (e-scooters, bikes/e-bikes, e-cargo bikes/cargo bikes) have been grouped together. Where there are differences between the modes, those are highlighted.

It is worth noting that CoMoUK have various guidance documents that can be of help to councils. For example, they have published guidance on starting and running a successful bike share scheme. The guidance is designed to help stakeholders, particularly councils, who would like to introduce shared micromobility schemes. In addition, CoMoUK are due to publish their report on the shared e-scooter trials in England.