Title
Shared Micromobility Program Progress Update
Description
This report provides information to the Transportation, Infrastructure and Planning Subcommittee on the Shared Micromobility Program performance, a progress update on the previous requests made by the subcommittee and recommended next steps.
THIS ITEM IS FOR INFORMATION AND DISCUSSION.
Report
Summary
The City of Phoenix Street Transportation Department (Streets) launched a Shared Micromobility Program (Micromobility Program) that replaced the Downtown Shared Electric Scooter Pilot Program (Pilot Program) on January 20, 2023. The City has contracts with two vendors, Lime and Spin, that provide the Micromobility Program. Vendor compliance includes:
- Deploying 15 percent of the fleet in Equity Zones,
- Providing accessible vehicles, traditional bikes, electric scooters (e-scooters) and electric bikes (e-bikes),
- Require vehicles be locked up at the end of rides outside of downtown Phoenix,
- Deploy bikes (traditional and electric) as a minimum 20 percent of their fleet.
In January 2024, Street Transportation Department staff provided an update on the Shared Micromobility Program. The subcommittee recommended staff address and evaluate Shared Micromobility Program changes, including program expansion and public engagement strategy, 24/7 operations, bicycle access, parking complaints, and Equity Zone utilization. This report provides an update on these program enhancements.
Micromobility Program Performance
Micromobility Program users took a total of 379,324 trips between August 2023 and July 2024, bringing the total to 590,413 trips since the January 2023 program start. October 2023 and April 2024 had the highest levels of ridership with over 38,000 trips in each month. Gradual dips in the program occur during hotter summer months starting in May through August. Connectivity throughout the downtown core is an essential transportation component during significant events such as the Men’s Final Four in April 2024 and the Women’s National Basketball Association (WNBA) All Star event on July 20, 2024. During the Men’s Final Four event, ridership increased an average of 107 percent compared to the previous weekend. The WNBA All Star event saw a smaller increase of 19 percent compared to the previous Saturday.
Vehicle Utilization
A key metric for evaluating the performance of a shared micromobility system is the number of trips per vehicle per day, or the utilization rate (UR). In the 2023 Shared Micromobility State of the Industry Report, the North American Bikeshare and Scootershare Association (NABSA) reported an average of 3.7 UR for traditional bikes and e-bikes and an average of 1.4 UR for e-scooters. The average UR for all vehicle types is 2.7 in all market types. From August 2023 through July 2024, the overall UR for the City's Micromobility Program was 0.93. For e-bikes, the average UR was 0.44, while e-scooters had an average UR of 0.94. The relatively low demand for micromobility in general, and shared bikes specifically, in Phoenix may reflect the overall lower rate of biking in Phoenix where 0.5 percent of adults use a bicycle to commute, based on the American Community Survey 2021 Five-Year Estimates.
Expansion and Engagement
In January 2024, the Transportation, Infrastructure, and Planning Subcommittee recommended the Shared Micromobility Program explore an expansion of two miles around light rail (Attachment A). Staff performed in-person and online engagement efforts to collect public feedback on expanding the program to the recommended limits. Staff developed a public survey which launched in April 2024 and was available through July 26, 2024. Staff presented at six community events. Staff collaborated with neighborhood associations to send e-mail blasts to residents and encourage participation in the public survey. Staff provided engagement materials to representatives with the Neighborhood Services and Planning and Development departments to reach more residents in Phoenix. Between April 1 and July 25, 2024, there was a total of 36 social media posts through Instagram, Facebook, and X (formerly Twitter) promoting the public survey. The survey was also promoted on the NextDoor smartphone application.
Public Survey Results
A total of 224 people took the survey and over 169 comments were received across all survey questions and in-person engagement (Attachment B). Of the 224 survey participants, 46 percent of respondents had used shared micromobility.
The top two responses in the survey expressing what has stopped residents from riding shared micromobility were “I do not have shared micromobility vehicles in my neighborhood” and “I do not feel safe riding micromobility vehicles”. Sixty-nine percent of survey respondents supported full expansion into the program study area, while 25 percent did not support any expansion. Six percent of respondents supported expansion but only to certain portions of the study area. Forty-three public comments were of general support to the expansion, with some comments expressing concern with micromobility vehicles being parked in front of residential homes and driveways. Sixty-three percent of survey respondents supported 24/7 operations of the Shared Micromobility Program while 26 percent of respondents did not.
Vendor Capability for Expansion
Vendors expressed support for an expansion of two miles around light rail due to anticipated demand and overall success of micromobility near high-capacity transit (Attachment C). Based on existing operations in Phoenix, the vendors suggested the Micromobility Program expand based on demand in the northern study area. Instead of expanding throughout the proposed expansion area all at once, parking corrals would be installed in certain hot spot areas along light rail and near high-demand restaurants, businesses, and services. Vendors would test the demand of the area before installing more parking corrals throughout the expanded area.
Number of Operating Vendors
Currently, the Micromobility Program has two vendors. Industry best practices recommend a maximum of two vendors is the right amount for 1,000 to 2,000 scooters and is appropriate for providing healthy market competition, customer choice, and overall administrative duties for a city like Phoenix. Currently, the Micromobility Program has an average of 1,122 vehicles deployed in the right-of-way.
To align with best practices and industry standards, Phoenix should add a third vendor as the Micromobility Program grows and utilization increases. A procurement process to expand the number of vendors should be initiated once the program boundary has expanded to include 500,000 residents, the average number of vehicles deployed per day is over 2,000, and the program has maintained an average UR equivalent to a three-year average reported by the NABSA or higher across a 12-month period.
24/7 Operations
On March 1, 2024, the Micromobility Program launched a six-month pilot of 24/7 operations. Vendors have expressed support for 24/7 operations, indicating that ridership could increase. Previously, the operating hours for the Micromobility Program were between 5 a.m. and 11:59 p.m. daily. These operating hours were selected to prevent people from operating the vehicles while intoxicated.
To mitigate these concerns, Spin agreed to use advanced technology on their designated smart phone apps that can assist in identifying intoxication using a sobriety test before unlocking a vehicle (Attachment D). The sobriety tests require potential users to complete puzzles within the app that test their coordination and reflex time.
Lime was no longer issuing the sobriety test on their smartphone application due to internal legal constraints. Instead, their smartphone application has an acknowledgement that riders click to confirm that they are safe to ride a micromobility vehicle (Attachment D). In addition, Lime launched an advertising campaign at bus stops to discourage riding under the influence.
Staff also committed to reviewing Vehicular Homicide Unit (VHU) data relating to electric scooters or electric bicycles during the pilot period.
Findings
During the pilot period, there was a total of 168,031 trips between March and July 2024. An average of 6.2 percent of all trips were taken between 12 a.m. and 5 a.m. Since the pilot began, the percentage of riders during curfew hours has gradually increased. Eighty-one percent of trips were taken by Lime riders during curfew hours. It is important to note that Lime has higher levels of ridership in Phoenix over Spin regardless of time of day.
The Spin sobriety test begins at 11:30 p.m. and is activated until 5 a.m. There were 2,997 sobriety tests issued between April and July 2024, with 95 percent of riders who passed the test. Spin experienced zero incidents during curfew hours throughout the pilot period.
Lime had two incidents that occurred during curfew hours during the pilot period, which accounted for less than 0.1 percent of all trips.
There has been a total of three e-scooter or e-bike incidents from March through July 2024 according to VHU reports. None of the incidents occurred during curfew hours or are related to the Micromobility Program vehicles.
Bicycle Access
The Micromobility Program requires 20 percent of the vehicle fleet to be bicycles, either e-bikes or pedal bikes, to ensure a wide variety of vehicles were available. Vendors were asked to provide e-scooters, e-bikes, traditional bikes, and accessible vehicles. Both selected vendors committed to providing e-bikes along with e-scooters in the right-of way. In addition, both vendors committed to providing traditional bikes through a library system.
Spin launched their library rental system in fall 2023, which allows users to reserve a traditional bike online at least 24 hours in advance. Vehicles are delivered to the user within the boundary area, and the vehicles are dropped off and picked up between 7 a.m. and 4 p.m. Users must register with the Spin app, but there will be no cost to the user.
Lime is still experiencing delays in launching their library rental system due to extended delivery times and device shortages. The Lime library system will allow users to reserve a traditional bike or accessibility vehicle online at least 24 hours in advance. Vehicles will be delivered to the user within the boundary area, and the vehicles will be picked up from the users after 24 hours. Users must register with the Lime app, but there will be no cost to the user.
While the library system does not allow users to rent traditional bikes in the right-of way, it allows users to reserve traditional bikes for a longer period of time at no cost. This approach mitigates against theft, while also increasing access to traditional bikes by making them free to check out and use.
An official bike share vendor in Phoenix would increase access to traditional bicycles. Streets will issue a Request for Proposals (RFP) for bike share in Phoenix. Staff has developed a scope of work and is working to release the RFP by winter 2024. In the event the bikeshare procurement is successful, Streets will provide information regarding the usage of the new bikeshare program after six months in operation.
Parking
Currently there are two different parking requirements within the Micromobility Program. Inside of the downtown core, riders must park their vehicles at a designated parking area (corrals), defined by white tape with parking decals. Outside of the downtown core, riders must park by locking the vehicle (using the built-in smart lock) to a bicycle rack or other vertical element in the right-of-way.
While free-floating parking allows more flexibility for riders on where they end their trip, it also increases challenges with people leaving vehicles in the middle of a sidewalk or a pedestrian ramp. When comparing locking requirements versus parking corrals, there is a lack of evidence that lock-to requirements lead to a higher rate of parking compliance. Monitoring and enforcing parking compliance is a major challenge with free-floating parking. It is not possible to remotely monitor whether a vehicle has been locked to something in the right-of-way. Moreover, the geo-location on the vehicles is not precise enough to confirm whether a vehicle is in the middle of a sidewalk or a pedestrian ramp.
Program-Wide Parking Corrals
A corral-based parking system will assist in mitigating operational challenges with a lock-to parking system and micromobility complaints. While parking areas in Downtown Phoenix are in designated corrals defined by white tape with floor decals, new virtual corral locations have been installed in places outside of downtown where the sidewalk space is not wide enough for micromobility parking (Attachment E). When riders end their ride, the app will show users where parking zones are located. The smartphone app will have a message that informs the rider of the parking requirement and prompts them to move the vehicle into the correct place. Virtual parking corral floor decals have been designed as physical markings that direct users to end their ride by placing the vehicle off the sidewalk and onto the gravel right-of-way. The cost of establishing and maintaining the corrals will be the responsibility of the vendors. A consistent parking policy within the program boundaries will help riders understand and comply with the Micromobility Program parking requirements.
Parking Corral Audit
Staff has been collaborating with shared micromobility operations to install program-wide parking corrals throughout current program boundaries. Locations for parking corrals were selected with the vendors and staff based on micromobility demand and vendor operation capabilities. A map of all corral locations is included as Attachment E. Data on each individual parking corral has been collected by the vendors detailing information on location and the markings indicating a parking area. Staff has internally mapped all the parking corrals with the existing data into an internal GIS web application for easier maintenance of the micromobility system. Following the data collection phase, staff will audit the expanded system by visiting 10 percent of the over 600 parking areas to ensure vendor compliance. Program-wide parking corrals will launch following an approval of the audit by staff.
Reporting and Parking Education
Staff has updated the webform through the myPHX311 website for more streamlined reporting of improperly parked micromobility vehicles. When residents fill out the webform, the report is sent to Phoenix staff and directly to the designated vendor’s local operations staff. Residents who report an improperly parked vehicle will receive a notification in their inbox that their message has been received. Each report will have a unique identification number that staff can use to track incidents.
Staff will create literature with updated information on how to report improperly parked micromobility vehicles. Magnets and business cards will be distributed to local businesses and public spaces with vendor contact information. Staff will continue to distribute these materials at public engagement events and in local neighborhood public spaces.
Equity Zones
The City has designated areas within the program boundary known as Equity Zones, where historical disinvestment has resulted in a lack of transportation options and economic opportunity. The vendors are required to deploy 15 percent of their fleet within Equity Zones. Discounted rates are automatically applied for trips beginning in Equity Zones. In addition, Lime and Spin have designated access programs which offer reduced rates for low-income individuals or people receiving government assistance. While the overall Micromobility Program utilization rate is 0.93, the utilization in Equity Zones between August 2023 and July 2024 is 0.70 trips per vehicle per day.
Staff performed seven stakeholder interviews to investigate why utilization rates in Equity Zones are low. Stakeholders included the Phoenix Housing Department, the Neighborhood Services Department, the Central City and South Mountain Phoenix Connected Active Neighborhood Connectors, South Mountain and Central City Village Planners, local bicycle advocates, and the micromobility vendors. Staff asked questions regarding perceived utilization of the program in Equity Zones and solutions to increase usage of the program.
Findings
Suggestions by stakeholders to increase the awareness and use of the program include:
- Increase awareness by educating the public about micromobility and promoting Equity Zone benefits.
- Providing literature to local businesses and multi-family housing communities, collaborating with culturally sensitive programs, and hosting activities in Equity Zones related to micromobility.
- Increased micromobility safety education and opportunities for residents to try riding the vehicles in a safe environment.
- Continue to improve active transportation routes and consider allowing micromobility vehicles to be used on sidewalks where bike lanes are not present.
Additional comments made by the interviewed stakeholders include a lack of devices available, hot temperatures in the summer, a need for payment methods that do not require a smartphone or credit card, and increased use for personal micromobility vehicles. Comments were also made regarding youth being unable to ride shared micromobility vehicles due to vendor policies.
Recommendations
Following community engagement, data monitoring, and research, staff has formed recommendations for the future of Shared Micromobility in Phoenix.
Program Expansion
Staff recommends expansion two miles around light rail following a transition to a fully corral based system. Incremental expansion opportunities will be evaluated as the program evolves. Vendors will continue to respond to resident complaints regarding improperly parked vehicles.
24/7 Operations
Staff recommends maintaining 24/7 operations due to public support, the increased utilization rate of the program, and unchanged incident rates. Staff will continue to request data from vendors regarding incident rates and will continue to monitor data on a monthly basis.
Bike Share
Staff will continue the process of procuring a traditional bikeshare vendor with an RFP by winter 2024. Title sponsorships for traditional bikeshare may be explored in the event Streets is unable to procure a successful applicant.
Parking Corral
Staff recommends program-wide parking corrals and anticipates the completion by fall 2024. Staff will audit the parking corral system on a yearly basis to ensure the parking system continues to be compliant. Staff will distribute literature to public spaces, local businesses, and residents on how to report an improperly parked micromobility vehicle.
Equity Zones and Public Engagement
Staff recommends transitioning major public outreach efforts from program expansion to Equity Zone community engagement. Staff will explore opportunities to collaborate with Equity Zone neighborhoods and relevant Phoenix departments to promote equity programs to Phoenix residents. In addition, staff will explore methods to engage with residents regarding micromobility rider safety. These opportunities may include micromobility demonstrations and community bike rides. The inclusion of corral locations throughout the entire micromobility program area will assist with sharing where vehicles can be found within Equity Zones.
Sidewalk Riding
Staff will continue to gather information on sidewalk riding and present a recommendation to the Transportation, Infrastructure, and Planning Subcommittee at a future date.
Concurrence/Previous Council Action
The Transportation, Infrastructure, and Planning Subcommittee:
- Information provided on the proposed Comprehensive Micromobility Program on October 20, 2021;
- Recommended approval to issue a solicitation for the program on April 20, 2022, by a vote of 4-0; and
- Recommended approval to amend Phoenix City Code to establish the Shared Micromobility Program on May 17, 2023, by a unanimous vote.
- Information provided on the first six months of the Micromobility Program on September 20, 2023; and
- Information provided on potential Micromobility Program expansion and potential updates on January 31, 2024
The Economic Development and Equity Subcommittee:
- An update was provided on the Shared Micromobility Shared Revenue Contract Solicitation on December 13, 2022; and
- An update was provided on utilization of electric scooters and electric bikes in the Shared Micromobility Program on June 28, 2023.
The City Council approved:
- The Pilot Program (Ordinance G-6602) on June 26, 2019;
- A Pilot Program extension (Ordinance G-6676) on February 19, 2020;
- A sunset provision extension (Ordinance G-6772) on December 2, 2020;
- A Pilot Program extension and a sunset provision extension (Ordinance G-6823) on March 17, 2021;
- A Pilot Program extension, a sunset provision extension, and the allowance of electric bicycles on public streets Citywide (Ordinance G-6967) on March 2, 2022;
- The issuance of an RFP to operate a Comprehensive Micromobility Program in Phoenix on May 11, 2022; and
- The award of the Revenue Contract Solicitation to two micromobility vendors to operate shared micromobility services in Phoenix on January 14, 2022.
Location
The Micromobility Program currently operates in Council Districts 7 and 8. Pilot expansion may impact Council Districts 1, 3, 4, 5, and 6.
Department
Responsible Department
This item is submitted by Deputy City Manager Inger Erickson and the Street Transportation Department.