Findings Report Scooter 201 8 I .14 I1 . I. i all?, '{ur -. 1* 32Contents EXECUTIVE SUMMARY 04 NEW MOBILITY BACKGROUND AND CONTEXT 08 CITY OF PORTLAND 2018 E-SCOOTER PILOT 10 PUBLIC ENGAGEMENT AND EDUCATION 14 2018 E-SCOOTER PILOT FINDINGS 16 CONCLUSION AND RECOMMENDATIONS 32 4 PORTLAND BUREAU OF TRANSPORTATION Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 5 Executive Summary Assessing the Potential of a New Transportation Technology E-scooters emerged in 2017 as a new shared mobility service in the United States. Less than a year after their debut, e-scooters were operating in 65 U.S. cities. They did not arrive without disruption; companies Bird and Lime began operations in 43 markets without government permits or consent. Several cities responded with cease and desist orders, fines, or both. Portland chose a different, proactive path, creating the E-Scooter Pilot Program. With the pilot, the Portland Bureau of Transportation (PBOT) focused on giving Portlanders access to this new transportation option while also ensuring that e-scooters would support Portland’s fundamental policy values. Designed to assess whether – and how – e-scooters could help meet Portland’s transportation needs, the pilot featured a permitting framework that aligned e-scooter company business practices with four critical City of Portland objectives: 1. Reduce traffic congestion by shifting trips away from private motor vehicle use 2. Prevent fatalities and serious injuries on Portland streets 3. Expand access to opportunities for underserved Portlanders 4. Reduce air pollution, including climate pollution Public Engagement and Education Pilot Findings Conclusion and Recommendations 6 PORTLAND BUREAU OF TRANSPORTATION • Using Data and Community Engagement to Drive Decisions E-scooter users preferred riding on low-speed streets and in bike lanes. Many of the highest utilized streets were part of Portland’s bikeway network. Staff PBOT instituted data-sharing requirements as one tool to observations also found lower rates of sidewalk riding assess the impact of e-scooters. Through the 120-day pilot on low-speed streets or those with dedicated space for period, companies were required to provide data that included non-motorized users. Users ranked bike lanes as their real-time availability, trip starts and destinations, routes, and safety information as a condition of the permit. With this data in hand, PBOT could understand where and when e-scooters were used and monitor compliance with East Portland deployment requirements. Data enabled City staff to see preferred road type, and sidewalks last. • E-scooters attracted new people to active transportation. 74 percent of local users reported never riding BIKETOWN and 42 percent never bicycling. e-scooter riding patterns and miles traveled. Technical data collection was supplemented by a rider survey, citywide poll, focus groups, an online complaint form, and community and stakeholder input. Pilot Findings: Challenges Include Riding, Parking, and Equitable Access The e-scooter pilot showed the potential of a small, light, electric shared vehicle to move people quickly and easily Pilot Findings: 700,000 Trips and Lots of Potential without adding to Portland traffic. At the same time, the pilot revealed several areas where more work is needed to integrate Tens of thousands of Portlanders and visitors alike e-scooters safely and smoothly into the fabric of our city. enthusiastically embraced scooters. During the four-month Despite an increase in scooter-related injuries during the period, people took 700,369 trips covering 801,887 miles on 2,043 e-scooters. Trip data analysis and PBOT’s user survey data revealed more about ridership trends: • A majority of Portlanders viewed e-scooters about 5 percent of total traffic crash injury visits during the pilot period. PBOT additionally received 43 reports of collisions Research, 62 percent of all Portlanders viewed e-scooters during the pilot period. positively at the end of the pilot. Support was even We heard from Portlanders throughout the pilot period about higher among Portlanders under 35 (71 percent), from people of color (74 percent), and those with incomes below $30,000 (66 percent). illegal sidewalk riding and incorrect scooter parking. With speeds capped at 15 mph, scooters are appropriate for bike lanes or low-volume streets, but they are too fast for use Portlanders primarily used e-scooters for transportation. 71 percent of Portlanders reported that they most frequently used e-scooters to get to a destination, while only a third of respondents (28.6 percent) said they most frequently used e-scooters for recreation or exercise. • Multnomah County were not severe enough to warrant emergency transport. E-scooter injury visits accounted for positively. In a representative citywide poll by DHM • pilot period, most injuries seen by emergency rooms across on sidewalks, where they make it unsafe or uncomfortable for people walking or using mobility devices. And while staff observations showed most scooters parked properly in the sidewalk furnishing zone, improperly parked scooters negatively impacted accessibility and created a hazard for people with visual impairments. E-scooters replaced driving and ride-hailing trips. 34 percent of Portland riders and 48 percent of visitors took an e-scooter instead of driving a personal car or using Uber, Lyft, or taxi. Executive Summary Background and Context 2018 E-Scooter Pilot E-Scooter Pilot 2.0: Building on What We’ve Learned E-scooters have the potential to advance Portland’s transportation goals. This is one of this report’s key findings. This report demonstrates that as Portland grows and traffic congestion gets worse, e-scooters can move more people safely and efficiently in the same amount of space. This helps reduce reliance on automobiles and shift trips to an efficient, potentially less-polluting travel option. We believe there is a preliminary indication that e-scooters are a lesspolluting travel option. However, we need more data – especially regarding e-scooter operations and lifecycle costs – before we can definitively say how much or even whether e-scooters directly contribute to a reduction in greenhouse gasses. During the pilot, riders took more than 700,000 e-scooter trips on various types of streets. Throughout the city, sidewalk riding was lower along streets with lower speeds or designated bikeways. For us, this clearly demonstrates how Although bicycles are allowed in Portland parks, including Waterfront Park and the Eastbank Esplanade, motorized vehicles are not. E-scooter use on Portland parks trails violated Portland Parks & Recreation’s rules, but most riders (66 percent) said they weren’t aware of the rules. E-scooter use impacted other park users and presented a significant management challenge for Portland Parks & Recreation staff. important it is to have protected facilities that minimize conflicts between pedestrians, e-scooters, and cars. For all of the positives about scooters that emerged during the pilot, we also learned valuable lessons about the challenges related to making scooters a permanent part of Portland’s transportation ecosystem. Given the scale and scope of these challenges, To align business practices with the City’s equity goals, PBOT required each e-scooter company to locate at least 100 scooters in East Portland communities each day and to offer a lowincome fare. Companies did not consistently comply with the East Portland fleet requirement. Companies only enrolled 43 Portlanders in the low-income plan. Along with staff observations, this suggests low company performance in aligning business practices with City equity goals. While many East Portlanders and Black Portlanders expressed enthusiasm for e-scooters, some focus group participants also expressed an overall concern for traffic safety and the risk that Black e-scooter riders would be targeted for racial profiling and harassment. we believe it is advisable to conduct a second pilot in 2019. This pilot will be longer to give us more time to collect data and test innovative solutions to the challenges that emerged this past summer and fall. We will specifically focus our efforts on improving equitable access across the city and ensuring safe and legal riding and parking. With the release of this report, PBOT plans to conduct additional public and stakeholder engagement through February 2019. Public engagement will inform a revision of PBOT’s administrative rule and permit application. PBOT anticipates have e-scooters on the ground again in early spring. Public Engagement and Education Pilot Findings Conclusion and Recommendations 8 PORTLAND BUREAU OF TRANSPORTATION New Mobility Background and Context E-scooters are an emerging technology and new mobility service. Like bike share and car share, the service provides a shared vehicle – in this case, a small electric-powered scooter – to rent for one-way trips. This new service makes use of an existing technology – the scooters themselves – and adds appbased technology that provides the ability to share the devices using a short-term rental business model. To begin a rental, users unlock a scooter through the company’s smartphone app. Some companies offer a call or text service to unlock for those without smartphones. To end a trip, users park the scooter on the sidewalk close to the curb and out of the pedestrian travel zone. Many companies require riders to confirm they have parked the e-scooter correctly by submitting a photo through the company’s app in order to end their rental. E-scooters are powered almost exclusively by an electric motor, after an initial kick-off to start the device. E-scooter technology is rapidly evolving. In 2018 multiple companies introduced new e-scooter models and several new companies entered the market. Relative to other active transportation options, e-scooters are more expensive. The average 19-minute e-scooter ride cost users $3.85 (low-income fare varied by company: $1.83-$2.85). This is more expensive than taking TriMet (adult fare: $2.50, low-income fare: $1.25) or BIKETOWN (Pay-as-you-go fare: $1.52; low-income fare: $3 per month for 90 minutes of daily ride time). Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 9 Operationally, e-scooters differ from other new mobility services in that the vehicles are usually picked up every night to be charged and are deployed the next day. Companies hire a mix of independent contractors as well as regular employees to charge, deploy, maintain, and respond to service requests. Throughout the day, e-scooters are distributed throughout the city based on where they are deployed and where people ride them and end their trips. During Portland’s four-month pilot, companies reported working with 1,533 independent contractors (primarily chargers) and paying $643,000 in total wagers to contractors. E-scooters first launched in the U.S. in September 2017. In Santa Monica, California, Bird Rides Inc., borrowing tactics from ride hailing companies, deployed e-scooters without the City’s permission. Santa Monica’s experience set the stage for a series of unpermitted entrances in the U.S. by Bird and Lime. Throughout the spring and summer of 2018, e-scooters appeared in more than 43 cities in the U.S., in many cases without permission from local officials or warning from the companies that operate the scooters. By August 2018, scooters were in 65 cities across the nation.1 1. Irfan, Umair. (2018, Sept. 7). Electric scooters’ sudden invasion of American cities, explained. Vox. https://www.vox.com/2018/8/27/17676670/electric-scooter-rental-birdlime-skip-spin-cities. Accessed 5 Nov. 2018. Public Engagement and Education Pilot Findings Conclusion and Recommendations 10 PORTLAND BUREAU OF TRANSPORTATION City of Portland 2018 E-Scooter Pilot Against a national backdrop of unforeseen and unpermitted of 2018. The framework enabled Portland to set out launches, City of Portland officials took a proactive approach regulations and put consumer protections in place. It to managing this new mobility service. In spring 2018, virtually also required participating companies to agree to a set every major e-scooter company contacted PBOT, requesting of comprehensive data sharing requirements. information about how the City might allow the new service. In May, PBOT presented the concept of an e-scooter pilot program to the bureau’s Pedestrian Advisory Committee, seeking input on how the City should account for the needs of people with disabilities and others who depend on sidewalk space. PBOT advised e-scooter companies that it would provide a permit application process in June, and a pilot program to start in July. PBOT warned the companies not to start service until a pilot program could begin. Portland’s pilot began July 23 and ended November 20, 2018. Five companies applied for permits, and three were permitted: Bird Rides Inc., Lime, and Skip Transport Inc. All three companies were operating e-scooters on Portland streets by early August. Each company started with 100 scooters to introduce Portlanders to the new technology and increased the number of e-scooters to their full permitted fleet quota by August 15. From August 15 through the end of the pilot, each company was permitted PBOT worked quickly to establish a permitting framework to to have 683 scooters available for rent each day, for a total run a 120-day e-scooter pilot from July through November of 2,043 permitted scooters. Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 11 Advancing Portland’s Policy Goals Portland’s 2035 Transportation System Plan (TSP) guides City These goals are also foundational to the administrative decisions about transportation investment, innovation, and rule establishing Portland’s e-scooter pilot (see Appendix permitting. The TSP envisions a safe, equitable, multimodal A). The findings in this report assess e-scooter potential to transportation system that expands mobility, protects advance these goals, in addition to evaluating operations livability, and promotes economic vitality in a rapidly growing and management. city. TSP policies seek to balance various transportation modes to help Portlanders move around efficiently, safely, and affordably. Key TSP goals include: As one of several new mobility offerings that rely on digital technology to deliver transportation services, e-scooters must be evaluated along with other emerging new mobility modes, including shared e-bikes, car share, and ride-hailing services • Reduce private motor vehicle use and congestion • Prevent fatalities and serious injuries on Portland streets • Expand access for underserved Portlanders • Reduce air pollution, including climate pollution such as Uber and Lyft. In addition, e-scooter operations should be considered in the context of existing and future infrastructure – including bike lanes and shared streets – that accommodates these efficient, active, low-emission vehicles. July 23, 2018 – November 20, 2018 (120 Days) Total miles: 801,887.84 Service area: Portland city boundaries (145 sq. mi) Average trips per day: 5,885 Citywide permitted cap: 2,043 scooters Average trip length: 1.15 miles Total trips: 700,369 Average East Portland trip length: 1.6 miles Public Engagement and Education Pilot Findings Conclusion and Recommendations 12 PORTLAND BUREAU OF TRANSPORTATION Figure 1 : E-Scooters Daily Trips and Distances Traveled 16,000 14,000 12,000 10,000 8,000 6,000 4,000 2,000 0 7/25 8/1 8/8 8/15 8/22 8/29 9/5 9/12 9/19 9/26 10/3 10/10 10/17 10/24 10/31 11/7 11/14 Total Distance Total Trips Pilot Program Regulatory Framework Penalties and Warnings Portland’s e-scooter pilot program was established by PBOT worked with each company to better understand the administrative rule and a permit that set specific conditions operational realities under the City’s administrative rule and for providing this transportation service within the city. The permit. After an initial observation period, PBOT regulatory total number of scooters was capped at 683 per company. staff began issuing compliance warnings regarding e-scooter To advance citywide equity goals, PBOT required that each deployment and performance. Staff communicated deployment company deploy at least 100 scooters in East Portland each data to each company on a weekly basis from the beginning day. Companies were required to limit scooters to a maximum of the pilot, urging companies to continually improve rider speed of 15 mph. education efforts as well as their own performance. About By Oregon state law, e-scooter riders must wear a helmet and are prohibited from riding on sidewalks. City code prohibits the use of motorized vehicles, including e-scooters, on trails in Portland parks. Administrative rules require companies and riders to park scooters on the sidewalk and close to the curb, in a manner that does not interfere with pedestrian access or travel. halfway through the pilot, staff had sufficient information about performance trends to initiate formal compliance conversations with each company. Companies were given deadlines to comply with the requirements of their permit, and PBOT issued warnings for improperly identified vehicles, insufficient data, citywide fleet compliance, and East Portland fleet compliance. As a condition of receiving a permit, companies were required to educate riders about safe riding and proper e-scooter parking. Over the course of the pilot period, PBOT issued two penalties, both to Skip Transport, Inc. One cited failure to meet East Portland fleet deployment requirements, and To advance citywide equity goals, PBOT required that each company deploy at least 100 scooters in East Portland each day. the other cited failure to meet the citywide deployment requirements outlined in the administrative rule and permit. Penalties were calculated for each day the company was out of compliance after a specified deadline. Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT Public Engagement and Education Pilot Findings 13 Conclusion and Recommendations 14 PORTLAND BUREAU OF TRANSPORTATION Public Engagement and Education In the context of e-scooter launches around the country, time was of the essence in developing Portland’s permit program. With a rapid rollout came the need for a significant amount of public education and engagement. To share information about the pilot and e-scooter rules of the road, PBOT developed education materials on e-scooter laws and proper riding and parking in five languages, distributing over 5,000 physical copies. Viewed more than 50,000 times, PBOT’s project website extended the reach of e-scooter safety messages. As the pilot period proceeded, PBOT and participating companies developed new educational materials and approaches to address emerging challenges. Staff solicited community input, hosted safety events, and hosted a helmet giveaway. E-scooter companies included riding rules in their app interface and posted them physically on the scooters. Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 15 PBOT Education and Engagement 1. Tabled at eight community events, with test rides and information on e-scooter laws, safety, and low-income programs 2. Hosted an e-scooter safety event and spoke to 450 people 3. Educated riders on the street, distributed handbills and attached educational flyers to scooters 4. Placed warning signs at main entry points to the Waterfront Park Trail and the Eastbank Esplanade alerting riders not to ride on these trails 5. Responded individually to 2,860 comments via the e-scooter online complaint and feedback form E-Scooter Company Education and Engagement 1. Listed e-scooter laws, rules, and safety information on the scooter, in the app, and on flyers and social media 2. Dedicated brand ambassadors who educated the public about safe riding 3. Each company was required to have a helmet distribution plan. Together, the companies handed out or mailed 2,292 free helmets to customers Public Engagement and Education Pilot Findings Conclusion and Recommendations 16 PORTLAND BUREAU OF TRANSPORTATION Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 17 Data Sources and Methodology This findings report is informed by quantitative and qualitative data collected throughout the pilot. Sources of data included: • Availability, trip, collision, and complaint data provided by companies (data specifications were modeled after the Los Angeles Mobility Data Standard and can be found in Appendix B) • Injuries and collisions reported by individuals, Portland Police Bureau, Portland Fire & Rescue, news outlets, and the companies themselves • ER and urgent care hospital visit data, provided by the Multnomah County Health Department • A User survey authored by PBOT and distributed by companies to users • A Citywide representative poll by DHM Research (results can be found in Appendix J) • Observational studies of user riding and parking behavior conducted by PBOT staff • Three separate focus groups with Portlanders from the Black community, with community members from East Portland, and one with people with disabilities • Community feedback and complaints provided via an online submission form, through email and phone calls, and through engagement with stakeholder committees Public Engagement and Education Pilot Findings Conclusion and Recommendations 2018 Portland E-Scooter Routes Traveled Informed by company-provided route data, this map shows routes traveled by e-scooter riders most often. Darker blue dots signify more trips taken on that street segment. Many of the heaviest utilized routes – including NE Going Street, SE 122nd Avenue, NW Johnson, SW Naito Parkway, and the Willamette Greenway Trail – are also a part of Portland's bikeway network. It is clear e-scooters were utilized in East Portland, where the City required companies to deploy at least 100 scooters. Total Number of Trips 250 1000 Portland City Boundary East Portland Pattern Area Executive Summary Background and Context 2018 E-Scooter Pilot Portland International Airport Lg w?A.u' 0-. - sn ?nu-v. . I . - . ..-.4 I I "f mp I [Ile ion-l 1 1-. - ELI, ?i~?Macaroon Public Engagement and Education _?glho?hT;f??ml 9 ?Hug? nuoll IL. I h- . g?mu; . . 93335134.. "HI-sun .LI-I Isa-.- '5 0" on. -4555 ?14; I upon-Ill?fll?f?l? I I 9.2-Powell . . Butte -, - STEPGLATSOP ST I 'l Pilot Findings Conclusion and Recommendations 20 PORTLAND BUREAU OF TRANSPORTATION 2018 E-Scooter Pilot Findings This Findings Report sets out to answer four key Transportation System Plan (TSP) goals: • Reduce private motor vehicle use and congestion • Prevent fatalities and serious injuries on Portland streets • Expand access for underserved Portlanders • Reduce air pollution, including climate pollution QUESTION: Do e-scooters reduce private motor vehicle use and traffic congestion? ANSWER: E-scooter trips replaced private motor vehicle use. However, the extent of motor vehicle use in managing e-scooter fleets is unknown. Multiple responses from the e-scooter user survey support this finding: • E-scooters replaced personal car and ride-hailing trips. Thinking of their last e-scooter trip, 34 percent of Portlanders said they would have either driven a personal car (19 percent) or hailed a taxi, Uber or Lyft (15 percent) had e-scooters not been available. • The auto trip replacement numbers were even higher among tourists and visitors (48 percent). Thinking of their last e-scooter trip, 34 percent of visitors would have taken a taxi, Uber or Lyft, and 14 percent would have driven a personal vehicle had e-scooters not been available. • Portlanders reduced or considered reducing their auto ownership due to e-scooters. Six percent of users reported getting rid of a car because of e-scooters and another 16 percent considered it. • Portlanders primarily used e-scooters for transportation. Seventy-one percent of Portlanders stated they most frequently used e-scooters to get to a destination, while only a third of respondents (28.6 percent) stated they most frequently used e-scooters for recreation or exercise. Executive Summary In addition to the survey results, pilot trip data shows a clear three-hour e-scooter evening commute peak, with 19 percent of all trips occurring between 3 p.m. and 6 p.m. on weekdays. As shown in the table to the right, weekend afternoons were also a peak riding time, with 10 percent of all trips occurring on Saturday and Sunday between 2 p.m. and 5 p.m. While a large portion of e-scooter trips replaced car and ridehailing trips, e-scooters also replaced lower-emission trips. Thinking of their last e-scooter trip, 42 percent of Portlanders said they would have either walked (37 percent) or ridden a personal bicycle (5 percent) had e-scooters not been available. Finally, e-scooter operations likely added personal motor vehicle trips to the transportation system, to deploy and retrieve e-scooters each day. The extent and overall impact to the transportation system and traffic congestion is unknown. Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 21 Figure 2 : E-Scooter Use by Time of Day Trip Start Time Monday Tuesday Wednesday Thursday Friday Saturday Grand Total 1280 765 723 786 720 840 1470 6584 1 AM 989 517 475 518 545 575 1010 4629 2 AM 704 348 361 392 412 475 723 3415 3 AM 361 233 202 228 215 192 316 1747 4 AM 261 230 196 179 186 229 256 1537 5 AM 281 298 355 361 374 401 331 2401 6 AM 495 791 980 964 986 910 591 5717 7 AM 860 1839 2218 2354 2451 2187 950 12859 8 AM 1781 2942 3377 3640 3665 3430 2038 20873 9 AM 3515 3208 3408 3342 3579 3602 3730 24384 10 AM 5806 3746 3431 3552 3674 4110 5897 30216 11 AM 7935 5591 5188 5285 5611 6242 8081 43933 12 PM 9564 6958 6690 6654 7027 8058 9644 54595 1 PM 10584 7345 6614 6669 6952 8097 11120 57381 2 PM 10698 7731 7132 6796 6994 8726 12278 60355 3 PM 10754 8149 7855 7191 8204 9612 12175 63940 4 PM 10129 8677 8813 8532 8956 10125 11773 67005 5 PM 8485 8855 9235 9599 9468 9816 10165 65623 6 PM 6834 7477 7928 7923 8366 8516 8294 55338 7 PM 5303 5795 6231 6278 6709 7410 6474 44200 8 PM 4246 4526 4978 4838 5196 6330 5212 35326 9 PM 2112 2252 2439 2402 2539 3189 2579 17512 10 PM 1480 1478 1576 1510 1594 2124 1995 11757 11 PM TOTAL Sunday 12 AM 1007 1162 1110 1094 1299 1750 1620 9042 105464 90913 91515 91087 95722 106946 118722 700369 Public Engagement and Education Pilot Findings Conclusion and Recommendations 22 PORTLAND BUREAU OF TRANSPORTATION QUESTION: Do e-scooters prevent serious traffic injuries and fatalities? What are the safety impacts of e-scooters? ANSWER: During the pilot period, scooter-related injuries increased however most scooter injuries were not severe enough to warrant emergency transport. There were no e-scooter-related traffic deaths during the pilot period. Eighty-four percent of emergency room visits were the result of an individual falling off a scooter. The high number of public complaints regarding sidewalk riding, coupled with the 3 percent of injuries resulting from collisions with pedestrians, suggest an impact to pedestrian safety and comfort. National data has found that when vehicle miles decrease, serious injuries and fatalities also decrease. With 34 percent of Portland scooter riders stating they replaced car trips with e-scooter trips, an increase in e-scooter use has the potential to contribute to a reduction in serious injuries and fatalities. FINDING: Multnomah County Health Department’s review found there were 176 scooter-related emergency room visits from July 25 – November 20, 2018. In the same period in 2017 there were 16 scooter-related emergency room visits. Visits increased from less than one per week before the pilot started to about 10 per week during the pilot period. Weekly visits peaked in late August and early September, then diminished to nearly pre-pilot levels before the pilot ended. This coincides with the typical annual peak in total traffic injury crash visits and vehicle miles traveled. In addition to Multnomah County Health Department data, PBOT received 43 reports of collisions during the pilot period. The scooter-related injury visits accounted for about 5 E-Scooter Related Emergency Room and Urgent Care Visits in Multnomah County July 25 – November 20, 2018 Colliding Mode None/fall 146 83% Car 22 12.5% Truck 2 1.1% 3 1.7% 2 1.1% 1 0.6% 176 100% Pedestrian (Scooter user injured after colliding with a pedestrian) Scooter (Pedestrian injured after being hit by a scooter user) period. There were no e-scooter-related deaths during Scooter was lower than the number of bicycle-related visits (429), without comparable data on how many trips were taken and distance traveled while bicycling, we can't directly compare Percent of Total (Rounded to nearest tenth) percent of total traffic crash injury visits during the pilot the pilot period. Although the number of e-scooter visits Total Visits (Scooter user injured after colliding with another scooter) Total Source: Multnomah County Health Department injury rates across modes. National research has found that the strongest variables There were several trends in the collision characteristics in triage notes: • connected to traffic fatality rates are the number of automobile In 16 percent of reports, there was evidence of intoxication noted • vehicle miles traveled and vehicles per capita.2 With 34 percent of Portland scooter riders stating they replaced car trips with e-scooter trips, an increase in e-scooter use has the potential to Helmet use was unknown in most injury reports (147, or contribute to a reduction in serious injuries and fatalities. 84 percent); in 3 percent of reports (six), it is noted that users were wearing a helmet, and in 13 percent of reports (23), it is noted that users were not wearing a helmet. Executive Summary 2. Ahangari, H., et. al. (2017). Automobile-dependency as a barrier to vision zero, evidence from the states in the USA. Accident Analysis and Prevention, 107(77-85). Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 23 Figure 3 : Complaints by Category Device Issue - 38 11% Helmet Issue - 1754 1% 29% Injury - 33 30% Other - 1062 1% Parking Issue - 844 Unsafe Riding on Sidewalk - 1622 18% 14% Unsafe Riding on Street - 671 Figure 4 : Unique Complaints and Submitters per Week 450 400 350 300 250 200 150 100 50 0 7/26 8/2 8/9 8/16 8/23 8/30 9/6 9/13 Submitters Public Engagement and Education 9/20 9/27 10/4 10/11 10/18 10/25 11/1 11/8 11/15 Complaints Pilot Findings Conclusion and Recommendations 24 PORTLAND BUREAU OF TRANSPORTATION FINDING: Sidewalk riding reduced pedestrian comfort. We heard from Portlanders throughout the pilot that illegal sidewalk riding made sidewalks feel unsafe or uncomfortable for people walking or using mobility devices. • 1,622 reports of sidewalk riding were submitted to PBOT’s online form, 26.9 percent of all reports. • FINDING: Users demonstrated a strong preference for bikeways and other protected infrastructure. In their absence, or on higher-speed streets, sidewalk riding increased. In the PBOT user survey, respondents ranked the bike lane as their preferred place to ride and sidewalks their least preferred place to ride. Sidewalk riding was a key concern voiced by the Pedestrian Advisory Committee (PAC), TriMet’s Committee on Accessible Transportation (CAT), and the Portland Commission on Disabilities (PCOD). To better understand on-the-ground practices, PBOT conducted user riding observations. Staff observed 128 e-scooter users at seven locations across the city. Five of the seven locations had bike lanes on at least one street. All user observations were At TriMet’s CAT, one committee member spoke to their fear conducted during two-hour periods from 4 to 6 p.m., over eight of getting hit by a scooter rider: “I have to be really careful when days between October 2 and October 12, 2018. PBOT staff stepping out of buildings now… scooters riding on the sidewalk is a tallied the number of individual users, perceived gender, helmet safety issue for me and for others I know with disabilities.” use, facility type used (bike lane, with traffic, etc.) and took With speeds capped at 15 mph, scooters are appropriate for bike lanes or low-volume streets but they are too fast for use sidewalks, where they make it unsafe or uncomfortable for people walking or using mobility devices. Reduced safety and comfort of our most vulnerable road users undermines our citywide goals to prioritize people walking over note of violations, such as riding in a park or riding the wrong direction with traffic. Observations showed that sidewalk riding was lowest on streets designed for people walking and rolling. • zero percent of riders used the sidewalk. • and to ensure that “changes do not make existing conditions worse for the most vulnerable users” (see Appendix C). In response to the public’s concerns raised about sidewalk riding, PBOT conducted additional user education and onthe-street engagement and user observations. When riding on a street with a protected bike lane, 8 percent of riders used the sidewalk. all other modes. PBOT’s Transportation System Plan (TSP) calls for decisions to consider the needs and safety of each group of users, When riding on a street with a neighborhood greenway, • When riding on a street with a bike lane, 21 percent of riders used the sidewalk. • When riding on a street with no bike facilities, 39 percent of riders used the sidewalk. When posted speed limits are 30 MPH or higher, most users rode illegally on the sidewalk. • Where the speed limit is 20 mph, 18 percent of riders used the sidewalk. • Where the speed limit is 30 mph, 50 percent of all riders used the sidewalk. • Where the speed limit is 35 mph, 66 percent of riders used the sidewalk. “I have to be really careful when stepping out of buildings now… scooters riding on the sidewalk is a safety issue for me and for others I know with disabilities.” -Committee on Accessible Transportation Committee Member Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT FINDING: Helmet use is rare. • • regarding users not wearing helmets. access for pedestrians and people with disabilities. next to a building) • 0.6 percent Parked within 30 feet of a bus stop, on a MAX or Streetcar platform (measured from the bus stop counter flow to traffic) PBOT staff conducted scooter parking observations from October 19 through November 20, 2018. Staff observed and recorded 357 parked scooters across the city with 67 percent observed in Southwest Portland, 17 percent observed in East Portland and 16 percent in other quadrants in Portland. • 10.4 percent Other (parked next to bike racks, in a park, on a street with no sidewalk or furnishing zone, or on private property) Improperly parked scooters after a user’s ride presented Parking observations showed: • 8.1 percent Partially blocked pedestrian movement (placed partially outside the furnishing zone or parked FINDING: While the majority of e-scooters are parked correctly, more work is needed to assure safety and • 5.3 percent Completely blocked pedestrian movement (In middle of a sidewalk) PBOT staff observed 90 percent of riders do not wear helmets. Of all complaints received by PBOT, 1,754 (29.1 percent) were 25 a challenge, especially for people with disabilities. This 72.8 percent Properly parked in the furnishing zone (not challenge increases in areas of Portland where the sidewalk blocking bike or pedestrian movement) is narrow or there is no sidewalk. Anecdotally, as the pilot 2.8 percent Impeded ADA access (blocking access ramp, compliance to these rules. handrail, or curb cut) progressed, staff received fewer complaints and saw better QUESTION: Do e-scooters expand opportunity and access for underserved Portlanders? ANSWER: E-scooters have the potential to expand opportunity and access for underserved Portlanders, though barriers exist. FINDING: While many Black Portlanders and East Portlanders expressed enthusiasm and support for e-scooters, focus group participants also expressed an overall concern with traffic safety and being targeted for racial profiling and harassment. The prohibitive cost of renting and a lack of knowledge of e-scooter laws and low-income plans also presented barriers to use. In a citywide representative poll, 74 percent of people of color viewed e-scooters positively. People living on low incomes also held positive views of e-scooters (66 percent). Out of 22 Portlanders who participated, less than half (eight) had ridden an e-scooter. Focus group participants expressed enthusiasm as well as an overall concern for traffic safety and being targeted for racial profiling and harassment. One individual spoke to the historical and current criminalization of people of color, stating, “it is not in our culture to pick up something off the street, ride it, and leave it for the next person.” For some focus group participants, the overall threat of an escalating incident outweighed the desire to try e-scooters. Other stated barriers to e-scooter use included needing to PBOT hosted two focus groups in early November 2018. transport children, not having a helmet, not having a safe Portlanders from Black communities and East Portland communities participated in two focus groups, one with 10 participants and one with 12 participants. Both focus groups were facilitated and hosted by Self-Empowerment Inc (SEI). place to learn to ride, age restrictions, a reluctance to link a credit card to the app, and fear of being overcharged. Nearly all focus group members expressed a desire for more information, including what the e-scooter laws are and how to use the service. Public Engagement and Education Pilot Findings Conclusion and Recommendations 26 PORTLAND BUREAU OF TRANSPORTATION Parents, youth, and single adults had differing views on “I LOVE having the scooters be part of the mix. They're fast, fun e-scooters. Adults who did not have children were most and convenient (when available, there needs to be a lot more). enthusiastic. This group viewed e-scooters as another great I live on 114th & E Burnside and have been pleased to see transportation option, and a way to save money on Uber, reasonable distribution of the scooters as far east as 150th. Lyft, and taxis. Parents were the least likely to have ridden Keep and EXPAND the scooters!” and did not see e-scooters as a way to transport their family. Youth expressed that e-scooters were fun and helpful to get to after-school activities, especially in the summer when their free youth bus pass is inactive. About half of the focus “I'd really like to see fewer cars everywhere, but the major thoroughfares are especially dangerous for non-driving travelers (peds, bikes, and now scooters).” group members didn't know they could make money charging Comments from users and trip statistics show the desire for e-scooters, and most expressed interest in this kind of work. safer infrastructure and additional transportation options, According to reports from e-scooter companies, only 47 users were on low-income plans. While two companies stated they offered cash payment plans, they did not report that any users signed up for those plans. These small numbers, along with staff observations, suggest that companies did not adequately promote their low-income fares. such as e-scooters. FINDING: Among people with disabilities, we heard that while e-scooters hold promise as a transportation option, improperly parked scooters impact access and safety for people with visual impairments and people who use mobility devices. Seven Portlanders with disabilities and two City staff with FINDING: East Portland deployment led to e-scooter utilization. disabilities participated in one focus group in early November, East Portland has historically been underserved by the transportation system, and PBOT was interested in understanding the utility and value of e-scooters in East Portland. On average, 243 e-scooters were deployed to East Portland (9.8 percent of the total fleet). Though this was significantly under the 300-scooter minimum requirement, facilitated by staff in Portland’s Office of Equity & Human Rights. The participants represented a wide range of mobility, hearing, and vision abilities. Among people with disabilities, we heard that while e-scooters might not be a good fit for everyone, having more transportation options is a good thing for Portland. 44,155 trips originated in East Portland during the pilot period. While e-scooters hold promise, several individuals with (See additional information in East Portland deployment disabilities expressed concerns about safety and user compliance finding section.) This demonstrates demand for behavior enforcement. One participant, who is blind, said it is additional transportation options. One significant difference challenging to walk and that they bump into scooters often. in e-scooter use in East Portland was the average trip length. Parking issues were the most challenging and concerning for Trips in East Portland averaged 1.6 miles, while in the Central focus group members when scooters blocked ADA access at a City, trips averaged one mile. transit stop or access to ADA parking spots. In our user survey, we heard two distinct messages from In the focus group, two individuals who had ridden e-scooters East Portlanders. Many community members expressed used them as a transportation option. For people in the focus appreciation that they had access to this new transportation group who haven’t ridden, balance and blindness were stated option, and others expressed a concern for a lack of safe barriers. For people who cited balance issues, a three- or four- infrastructure: wheeled scooter could be a good accommodation. Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 27 QUESTION: Do e-scooters contribute to a reduction in air pollution, including climate pollution? ANSWER: More experience with e-scooters and more data collection are needed to determine whether e-scooters directly contribute to a reduction in greenhouse gases. Based on our preliminary analysis of the available data, that would have been traveled in single occupancy vehicles it is uncertain if e-scooters help advance Portland’s and other shared vehicle trips (see Appendix F). Given Transportation System Plan goals and policies by contributing the geographic distribution of e-scooter rides during the to a reduction in air pollution, including climate pollution. pilot, it is reasonable to expect that many of those miles However, early findings show that e-scooters reduced would have occurred in the Central City and inner eastside automobile trips. neighborhoods, areas which experience traffic congestion Analysis of the PBOT’s user survey suggests that e-scooters facilitate mode shift, most notably away from walking, single occupancy vehicles, and ride-hailing. Comparing these percentages to the total number of scooter miles traveled during the e-scooter pilot (801,887 miles), we estimate that e-scooters replaced approximately 301,856 vehicle miles issues. Using the U.S. Environmental Protection Agency’s average CO2 emissions per vehicle mile, we estimate that during the pilot, e-scooters prevented automobiles from emitting approximately 122 metric tons of CO2, equivalent to removing nearly 27 average passenger vehicles from the road for a year. E-Scooters replaced approximately 301,856 vehicle miles Public Engagement and Education Pilot Findings Conclusion and Recommendations 28 PORTLAND BUREAU OF TRANSPORTATION While these findings are promising, it is important to note operations, frequency of scooter replacement, their waste three key limitations to this analysis. First, whether survey stream, or more. Without these data, it seems reasonable respondents would behave in accordance with what they to assume that if those emissions were accounted for, then stated in the survey is unknown. Second, without occupancy they could potentially reduce or eliminate the greenhouse data on the number of shared Uber and Lyft rides (i.e., gas benefits modeled above. Understanding more about two or more riders), we assumed that 10 percent of those e-scooter-related emissions would also help evaluate the rides would have been shared and 90 percent would have climate impact of e-scooter trips replacing walking and been single rides. Third, we simply do not have the data personal bicycling trips (42%) as reported in the user survey. necessary to account for the emissions associated with Clearly, more data are needed to determine whether or how e-scooter companies’ business models. This includes data e-scooters contribute to Portland’s adopted policy goals of about emissions associated with e-scooter companies’ supply reducing air pollution, including climate pollution. chains, manufacturing processes, charging and deployment QUESTION: Did companies comply with the permit requirements? ANSWER: Overall, companies’ compliance with the permit requirements varied. PBOT worked with individual companies on improving performance and better understanding each company’s operational realities. FINDING: The companies’ compliance with the permit’s data requirements varied. All companies supplied APIs to PBOT, however some key terms were not universally used and defined, which led to inaccurate data reporting by the companies. FINDING: Companies did not consistently comply with the citywide fleet requirements. However, one company performed better than the others. PBOT required a robust suite of Application Programming performed the best deploying almost 100 percent of their Interfaces (APIs) including device availability, trips (start, end, fleet. Skip averaged below 90 percent of the citywide fleet and route data), collisions, complaints, and enumerated values requirement. that are referenced in the API specifications (Appendix B). This set of data was a primary source for both the findings report and company compliance. Companies were required to make 90 percent of their permitted fleet available per day. Overall, Bird and Lime Skip consistently deployed fewer devices due to a misunderstanding of the requirement, which the Bureau clarified after identifying the compliance issue. Later in the The pilot revealed that participating companies categorize pilot, Skip chose to temporarily halt deployment due to rain, their device information differently and adapting to permit which has been accounted for in this compliance report. API specifications wasn’t as straightforward as originally speculated. For example, it was discovered toward the end of the pilot that Bird’s availability data, which was informing our compliance dashboards, was underreporting their Portland fleet. This issue appeared to be the result of undefined terms, Compliance was calculated based on data received through the API from all companies and historical data provided by Bird. FINDING: Companies did not consistently comply with the East Portland fleet requirement. However, one thought to be universally understood, which was ultimately company performed better than the others. corrected. To rectify this discrepancy, PBOT asked for historical PBOT required companies to deploy at least 100 scooters data to supplement what was collected during the pilot to produce a more accurate reflection of the pilot for the purpose of this report. Executive Summary or 20 percent of their fleet (whichever is less) in East Portland. Overall, Bird performed by best averaging more Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT than 100 percent of the minimum required number of e-scooters in East Portland. Both Lime and Skip averaged below 90 percent of the minimum East Portland fleet 29 FINDING: Companies complied with user education requirements. Companies educated their e-scooter users by listing requirement throughout the pilot. applicable laws in their apps, on their vehicles, and distributed educational flyers and helmets at events. Compliance was calculated based on data received through the API from all companies and historical data provided by Bird. In addition, companies required their users to take a picture of their parked e-scooter at the end of their trip. FINDING: While companies performed well in responding to emergency and non-emergency response requirements from the City, companies’ complaint data was not reported to PBOT’s expectations. Therefore, we are unable to analyze how responsive companies were to public complaints. Lime was the only company to report community- PBOT is unclear whether the pictures are monitored by the companies to ensure users are properly parking e-scooters. FINDING: With regards to deployment locations, company compliance improved as the pilot progressed, but was still not satisfactory. PBOT’s permit parking requirements reflect our values of generated complaint data. However, all companies consistently responded to emergency and non-emergency requests from the City. Companies had between 20 and 60 minutes to respond to a City-initiated complaint accessibility for our most vulnerable road users – pedestrians and people with disabilities. The permit language prohibited deployment under 19 conditions. depending on the nature of the complaint. Each company Major issues included deployments blocking access either met or made a good faith effort to meet these time to transit, blocking access to ADA facilities, blocking requirements. pedestrian throughways, on private property, and in FINDING: Companies complied with capping the speed of their e-scooters. However, PBOT staff vehicle testing suggests several factors affect speed. neighboring jurisdictions. Through frequent management conversations, deployment compliance improved as the pilot progressed. The companies were quick to respond to specific deployment modifications Early in the pilot, a local news outlet reported that PBOT requested. e-scooters exceeded the maximum speed permitted in the administrative rule by almost 5 mph. Responding to this concern, three staff members conducted a test to understand the variability of scooter speeds and the ability of companies to modify their vehicles to comply with local regulations. Staff chose a minimally populated street with a low grade and tested the speed of scooters from each company using both a smartphone app and a handheld speed-reader. The test resulted in speeds ranging from 14.5 mph to 18.6 mph. Several factors, including but not limited to street activity, grade, user weight, user driving style, and environmental conditions, contributed to the variability in device speeds. Companies asserted that while these variables exist and should be reflected in local regulations, they can also cap the speed of devices within a reasonable margin. Public Engagement and Education Pilot Findings Conclusion and Recommendations 30 PORTLAND BUREAU OF TRANSPORTATION 2018 E-Scooter Pilot Financials The Purpose section of Portland’s New Mobility Shared The Fee Schedule in the Shared Electric Scooter Electric Scooter administrative rule, TRN-15.01 states that Permit included: “1.D. Shared Scooter fees, surcharges and penalties will be • Permit Application Fee: $250 administration and enforcement; evaluation; safe travel • Pilot Permit Fee: $5,000 infrastructure; and expanded and affordable access.” • Per-Trip Surcharge: $0.25 placed in a New Mobility Account to be used by PBOT for Together, these permit and ride fees covered project startup and program administration costs for the e-scooter pilot, as well as educational materials and public outreach. Permits & Fees   Pre-Pilot Phase     n/a $   Pre-Pilot Phase -   Program design Subtotal $ -   Subtotal         Pilot Phase   Pilot Phase Application and permit fees $ 15,500 Per trip surcharge $ 187,577 Fines and penalties $ 9,000 Subtotal $ 212,077     Expenses $ 48,995 $ 48,995       Program administration Post-Pilot Phase n/a $ - Subtotal $ -     212,077     Executive Summary 155,415   Educational materials $ 11,455     $   $ 166,870     Program evaluation   Subtotal       $ $   Subtotal         Post-Pilot Phase   Total Permits & Fees   and outreach     $ 71,417 $ 71,417       Total Expenses $ 287,282       (75,205)   Balance *All figures current through$12/09/2018. Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT Public Engagement and Education Pilot Findings 31 Conclusion and Recommendations 32 PORTLAND BUREAU OF TRANSPORTATION Executive Summary Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 33 Conclusion and Recommendations E-scooters have the potential to advance Portland’s sidewalk riding was lower along streets with lower speeds transportation goals. This is one of this report’s key or designated bikeways. For us, this clearly demonstrates findings. This report demonstrates that as Portland how important it is to have protected facilities that minimize grows and traffic congestion gets worse, e-scooters conflicts between pedestrians, e-scooters, and cars. can move more people safely and efficiently in the For all of the positives about scooters that emerged during the same amount of space. This helps reduce reliance on pilot, we also learned valuable lessons about the challenges automobiles and shift trips to an efficient, potentially related to making scooters a permanent part of Portland’s less-polluting travel option. We believe there is a transportation ecosystem. preliminary indication that e-scooters are a lesspolluting travel option. However, we need more data Given the scale and scope of these challenges, we believe it is – especially regarding e-scooter operations and lifecycle advisable to conduct a second pilot in 2019. This pilot will be costs – before we can definitively say how much or even longer to give us more time to test innovative solutions to the whether e-scooters directly contribute to a reduction in challenges that emerged this past summer and fall. We will greenhouse gasses. specifically focus our efforts on improving equitable access across the city and ensuring safe and legal riding and parking. During the pilot, riders took more than 700,000 e-scooter trips on various types of streets. Throughout the city, Next Steps With the release of this report, PBOT plans to conduct additional public and stakeholder engagement through February 2019. Public engagement will inform a revision of PBOT's administrative rule and permit application. PBOT anticipates having e-scooters on the ground again in early spring. January Public engagement on key challenges, identify potential solutions February Draft administrative rule and permit application Public Engagement and Education March Solicit and review permit applications Pilot Findings Early Spring Award permits and launch E-Scooter Pilot 2.0 2020 Recommendations Throughout E-Scooter Pilot 2.0: Collect data and analyze effectiveness of tested solutions Conclusion and Recommendations 34 PORTLAND BUREAU OF TRANSPORTATION E-Scooter Findings Report Appendix The E-Scooter Findings Report Appendix is available online at: https://www.portlandoregon.gov/transportation/e-scooter A. New Mobility Shared Electric Scooter Administrative Rule - TRN-15.01 F. Climate Reduction Methods G. User Survey Results H. Complaint Form Questions B. Permit Application I. Multnomah County Health Department Injury Data C. TSP Goals D. API Data Methodology and Limitations / Assumptions Executive Summary E. Data Analytics Process J. DHM Research E-Scooter Pilot Project Survey Report Background and Context 2018 E-Scooter Pilot E-SCOOTER FINDING REPORT 35 Acknowledgments & Contributors Transportation Commissioner Chloe Eudaly Former Transportation Commissioner Dan Saltzman Interim Director, Portland Bureau of Transportation Chris Warner Former Director, Portland Bureau of Transportation Leah Treat Pilot Project Managers Briana Orr and Erika Nebel Pilot Project Team Dave Benson, John Brady, Catherine Ciarlo, Mike Crebs, Eric Hesse, Peter Hurley, Aubrey Lindstrom, Josh Lynch, Steve Hoyt-McBeth, Mike McDonald, Corrine Montana, Jacob Sherman, Mark Williams Special thanks to Tosin Abiodun, Josiah Barber, Nicole Cheron, Corinne Kotter, Mary Everson, Mary Christine Manaois-Meneses, Irene Marion, Aeron Polly, Dylan Rivera, Self Empowerment Inc. Graphics by Josh Lynch, Aubrey Lindstrom, Sarah Petersen, Portland Bureau of Transportation; HUB Collective Photography by Viktoria Haiboniuk and Sarah Petersen, Portland Bureau of Transportation Contributors DHM Research, Multnomah County Health Department, Portland Police Bureau, Portland Fire & Rescue, Portland Parks & Recreation It is the policy of the City of Portland that no person shall be excluded from participation in, denied the benefits of, or be subjected to discrimination in any city program, service, or activity on the grounds of race, color, national origin, disability, or other protected class status. Adhering to Civil Rights Title VI and ADA Title II civil rights laws, the City of Portland ensures meaningful access to city programs, services, and activities by reasonably providing: translation and interpretation, modifications, accommodations, alternative formats, and auxiliary aids and services. To request these services, contact 503-823-5037, City TTY 503-823-6868, Relay Service: 711 Public Engagement and Education Pilot Findings Conclusion and Recommendations 1. - din-a.-. PORTLAND BUREAU OF TRAN i?