Pbot E-Scooter 01152019

2018
E-Scooter
Findings
Report
Contents
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

Using Data and Community • E-scooter users preferred riding on low-speed streets
Engagement to Drive Decisions 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 preferred road type, and sidewalks last.
safety information as a condition of the permit. With this data
in hand, PBOT could understand where and when e-scooters • E-scooters attracted new people to active transportation.
were used and monitor compliance with East Portland 74 percent of local users reported never riding BIKETOWN and
deployment requirements. Data enabled City staff to see 42 percent never bicycling.
e-scooter riding patterns and miles traveled. Technical data
collection was supplemented by a rider survey, citywide poll,
Pilot Findings: Challenges Include Riding,
focus groups, an online complaint form, and community
and stakeholder input. 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 without adding to Portland traffic. At the same time, the pilot
and Lots of Potential 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 pilot period, most injuries seen by emergency rooms across
2,043 e-scooters. Trip data analysis and PBOT’s user survey Multnomah County were not severe enough to warrant
data revealed more about ridership trends: emergency transport. E-scooter injury visits accounted for
• A majority of Portlanders viewed e-scooters about 5 percent of total traffic crash injury visits during the
positively. In a representative citywide poll by DHM 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 illegal sidewalk riding and incorrect scooter parking. With
people of color (74 percent), and those with incomes speeds capped at 15 mph, scooters are appropriate for bike
below $30,000 (66 percent). lanes or low-volume streets, but they are too fast for use
• Portlanders primarily used e-scooters for on sidewalks, where they make it unsafe or uncomfortable
transportation. 71 percent of Portlanders reported for people walking or using mobility devices. And while staff
that they most frequently used e-scooters to get to a observations showed most scooters parked properly in
destination, while only a third of respondents (28.6 the sidewalk furnishing zone, improperly parked scooters
percent) said they most frequently used e-scooters for negatively impacted accessibility and created a hazard for
recreation or exercise. 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.

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 less-
polluting 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
important it is to have protected facilities that
Although bicycles are allowed in Portland parks, including minimize conflicts between pedestrians, e-scooters,
Waterfront Park and the Eastbank Esplanade, motorized and cars.
vehicles are not. E-scooter use on Portland parks trails
For all of the positives about scooters that
violated Portland Parks & Recreation’s rules, but most
emerged during the pilot, we also learned
riders (66 percent) said they weren’t aware of the rules.
valuable lessons about the challenges related to
E-scooter use impacted other park users and presented
making scooters a permanent part of Portland’s
a significant management challenge for Portland Parks &
transportation ecosystem.
Recreation staff.
Given the scale and scope of these challenges,
To align business practices with the City’s equity goals, PBOT
we believe it is advisable to conduct a second
required each e-scooter company to locate at least 100 scooters
pilot in 2019. This pilot will be longer to give us
in East Portland communities each day and to offer a low-income
more time to collect data and test innovative
fare. Only one company complied with the East Portland fleet
solutions to the challenges that emerged this
requirement. Companies only enrolled 43 Portlanders in the
past summer and fall. We will specifically focus our
low-income plan. Along with staff observations, this suggests low
efforts on improving equitable access across the city
company performance in aligning business practices with City
and ensuring safe and legal riding and parking.
equity goals.
With the release of this report, PBOT plans
While many East Portlanders and Black Portlanders expressed
to conduct additional public and stakeholder
enthusiasm for e-scooters, some focus group participants also
engagement through February 2019. Public
expressed an overall concern for traffic safety and the risk
engagement will inform a revision of PBOT’s
that Black e-scooter riders would be targeted for racial
administrative rule and permit application.
profiling and harassment.
PBOT anticipates have e-scooters on the
ground again in early spring.

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 app-
based 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).

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-bird-
lime-skip-spin-cities. Accessed 5 Nov. 2018.

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.
Portland’s pilot began July 23 and ended November 20,
In May, PBOT presented the concept of an e-scooter pilot
2018. Five companies applied for permits, and three were
program to the bureau’s Pedestrian Advisory Committee,
permitted: Bird Rides Inc., Lime, and Skip Transport Inc. All
seeking input on how the City should account for the needs of
three companies were operating e-scooters on Portland
people with disabilities and others who depend on sidewalk
streets by early August. Each company started with 100
space. PBOT advised e-scooter companies that it would
scooters to introduce Portlanders to the new technology
provide a permit application process in June, and a pilot
and increased the number of e-scooters to their full
program to start in July. PBOT warned the companies not to
permitted fleet quota by August 15. From August 15
start service until a pilot program could begin.
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.

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
As one of several new mobility offerings that rely on digital
modes to help Portlanders move around efficiently, safely,
technology to deliver transportation services, e-scooters must
and affordably. Key TSP goals include:
be evaluated along with other emerging new mobility modes,
• Reduce private motor vehicle use and congestion including shared e-bikes, car share, and ride-hailing services
such as Uber and Lyft. In addition, e-scooter operations
• Prevent fatalities and serious injuries on Portland streets
should be considered in the context of existing and future
• Expand access for underserved Portlanders infrastructure – including bike lanes and shared streets – that
accommodates these efficient, active, low-emission vehicles.
• Reduce air pollution, including climate pollution
July 23, 2018 – Total miles:

November 20, 2018 801,887.84
(120 Days)
Service area: Average trips

Portland city per day: 5,885
boundaries (145 sq. mi)
Citywide permitted Average trip

cap: 2,043 scooters length: 1.15 miles
Total trips: Average East Portland

700,369 trip length: 1.6 miles

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
halfway through the pilot, staff had sufficient information
By Oregon state law, e-scooter riders must wear a helmet and are
about performance trends to initiate formal compliance
prohibited from riding on sidewalks. City code prohibits the use
conversations with each company. Companies were given
of motorized vehicles, including e-scooters, on trails in Portland
deadlines to comply with the requirements of their permit,
parks. Administrative rules require companies and riders to park
and PBOT issued warnings for improperly identified vehicles,
scooters on the sidewalk and close to the curb, in a manner that
insufficient data, citywide fleet compliance, and East Portland
does not interfere with pedestrian access or travel.
fleet compliance.
As a condition of receiving a permit, companies were required to
Over the course of the pilot period, PBOT issued two
educate riders about safe riding and proper e-scooter parking.
penalties, both to Skip Transport, Inc. One cited failure to
meet East Portland fleet deployment requirements, and
To advance citywide equity goals, PBOT the other cited failure to meet the citywide deployment
required that each company deploy at least requirements outlined in the administrative rule and permit.
100 scooters in East Portland each day. Penalties were calculated for each day the company was
out of compliance after a specified deadline.


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.

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


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

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

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 In addition to the survey results, pilot trip data shows a clear
trips. Thinking of their last e-scooter trip, 34 percent of three-hour e-scooter evening commute peak, with 19 percent
Portlanders said they would have either driven a personal of all trips occurring between 3 p.m. and 6 p.m. on weekdays.
car (19 percent) or hailed a taxi, Uber or Lyft (15 percent) As shown in the table to the right, weekend afternoons were
had e-scooters not been available. also a peak riding time, with 10 percent of all trips occurring
on Saturday and Sunday between 2 p.m. and 5 p.m.
• The auto trip replacement numbers were even higher
among tourists and visitors (48 percent). Thinking While a large portion of e-scooter trips replaced car and ride-
of their last e-scooter trip, 34 percent of visitors would hailing trips, e-scooters also replaced lower-emission trips.
have taken a taxi, Uber or Lyft, and 14 percent would Thinking of their last e-scooter trip, 42 percent of Portlanders
have driven a personal vehicle had e-scooters not been said they would have either walked (37 percent) or ridden a
available. personal bicycle (5 percent) had e-scooters not been available.
• Portlanders reduced or considered reducing their Finally, e-scooter operations likely added personal motor
auto ownership due to e-scooters. Six percent of users vehicle trips to the transportation system, to deploy and
reported getting rid of a car because of e-scooters and retrieve e-scooters each day. The extent and overall impact to
another 16 percent considered it. the transportation system and traffic congestion is unknown.
• 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.

Figure 2 : E-Scooter Use by Time of Day
Trip Start Time Sunday Monday Tuesday Wednesday Thursday Friday Saturday Grand Total
12 AM 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 1007 1162 1110 1094 1299 1750 1620 9042
TOTAL 105464 90913 91515 91087 95722 106946 118722 700369

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

E-Scooter Related Emergency Room and Urgent Care
review found there were 176 scooter-related emergency
Visits in Multnomah County July 25 – November 20, 2018
room visits from July 25 – November 20, 2018. In the
same period in 2017 there were 16 scooter-related Total Percent of Total
Colliding Mode
emergency room visits. Visits increased from less than Visits (Rounded to nearest tenth)
one per week before the pilot started to about 10 per

week during the pilot period. Weekly visits peaked None/fall 146 83%
in late August and early September, then diminished
to nearly pre-pilot levels before the pilot ended. This Car 22 12.5%
coincides with the typical annual peak in total traffic
injury crash visits and vehicle miles traveled. Truck 2 1.1%
In addition to Multnomah County Health Department data, Pedestrian

(Scooter user injured after 3 1.7%
PBOT received 43 reports of collisions during the pilot period. colliding with a pedestrian)
The scooter-related injury visits accounted for about 5 Scooter

(Pedestrian injured after 2 1.1%
percent of total traffic crash injury visits during the pilot being hit by a scooter user)
period. There were no e-scooter-related deaths during Scooter

(Scooter user injured after 1 0.6%
the pilot period. Although the number of e-scooter visits colliding with another scooter)
was lower than the number of bicycle-related visits (429),

Total 176 100%
without comparable data on how many trips were taken and
distance traveled while bicycling, we can't directly compare Source: Multnomah County Health Department
injury rates across modes.

National research has found that the strongest variables
There were several trends in the collision
connected to traffic fatality rates are the number of automobile
characteristics in triage notes:
vehicle miles traveled and vehicles per capita.2 With 34 percent
• In 16 percent of reports, there was evidence of of Portland scooter riders stating they replaced car trips with
intoxication noted 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 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).
(23), it is noted that users were not wearing a helmet.

Figure 3 : Complaints by Category
Device Issue - 38
11%
Helmet Issue - 1754 1%
29%
Injury - 33
Other - 1062 27%

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 9/20 9/27 10/4 10/11 10/18 10/25 11/1 11/8 11/15
Submitters Complaints

FINDING: Sidewalk riding reduced pedestrian comfort. FINDING: Users demonstrated a strong preference for
bikeways and other protected infrastructure. In their
We heard from Portlanders throughout the pilot that illegal
absence, or on higher-speed streets, sidewalk riding
sidewalk riding made sidewalks feel unsafe or uncomfortable
increased.
for people walking or using mobility devices.
In the PBOT user survey, respondents ranked the bike lane as
• 1,622 reports of sidewalk riding were submitted to PBOT’s
their preferred place to ride and sidewalks their least preferred
online form, 26.9 percent of all reports.
place to ride.
• Sidewalk riding was a key concern voiced by the
To better understand on-the-ground practices, PBOT conducted
Pedestrian Advisory Committee (PAC), TriMet’s Committee
user riding observations. Staff observed 128 e-scooter users at
on Accessible Transportation (CAT), and the Portland
seven locations across the city. Five of the seven locations had
Commission on Disabilities (PCOD).
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
note of violations, such as riding in a park or riding the wrong
With speeds capped at 15 mph, scooters are appropriate for
direction with traffic. Observations showed that sidewalk riding
bike lanes or low-volume streets but they are too fast for use
was lowest on streets designed for people walking and rolling.
sidewalks, where they make it unsafe or uncomfortable for
people walking or using mobility devices. • When riding on a street with a neighborhood greenway,
zero percent of riders used the sidewalk.
Reduced safety and comfort of our most vulnerable road users
undermines our citywide goals to prioritize people walking over • When riding on a street with a protected bike lane,
all other modes. PBOT’s Transportation System Plan (TSP) calls for 8 percent of riders used the sidewalk.
decisions to consider the needs and safety of each group of users,
• When riding on a street with a bike lane, 21 percent of
and to ensure that “changes do not make existing conditions
riders used the sidewalk.
worse for the most vulnerable users” (see Appendix C).
• When riding on a street with no bike facilities, 39 percent
In response to the public’s concerns raised about sidewalk
of riders used the sidewalk.
riding, PBOT conducted additional user education and on-
the-street engagement and user observations. 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

FINDING: Helmet use is rare. • 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 • 8.1 percent Partially blocked pedestrian movement
regarding users not wearing helmets. (placed partially outside the furnishing zone or parked
next to a building)
FINDING: While the majority of e-scooters are parked
correctly, more work is needed to assure safety and • 0.6 percent Parked within 30 feet of a bus stop, on a
access for pedestrians and people with disabilities. MAX or Streetcar platform (measured from the bus stop
PBOT staff conducted scooter parking observations from counter flow to traffic)
October 19 through November 20, 2018. Staff observed and • 10.4 percent Other (parked next to bike racks, in a park,
recorded 357 parked scooters across the city with 67 percent on a street with no sidewalk or furnishing zone, or on
observed in Southwest Portland, 17 percent observed in East private property)
Portland and 16 percent in other quadrants in Portland.
Improperly parked scooters after a user’s ride presented
Parking observations showed: 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
progressed, staff received fewer complaints and saw better
• 2.8 percent Impeded ADA access (blocking access ramp, compliance to these rules.
handrail, or curb cut)
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 Out of 22 Portlanders who participated, less than half (eight)
Portlanders expressed enthusiasm and support for had ridden an e-scooter. Focus group participants expressed
e-scooters, focus group participants also expressed enthusiasm as well as an overall concern for traffic safety and
an overall concern with traffic safety and being being targeted for racial profiling and harassment.
targeted for racial profiling and harassment. The
prohibitive cost of renting and a lack of knowledge One individual spoke to the historical and current
of e-scooter laws and low-income plans also criminalization of people of color, stating, “it is not in our
presented barriers to use. culture to pick up something off the street, ride it, and leave it
for the next person.” For some focus group participants, the
In a citywide representative poll, 74 percent of people of color
overall threat of an escalating incident outweighed the desire
viewed e-scooters positively. People living on low incomes also
to try e-scooters.
held positive views of e-scooters (66 percent).
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
place to learn to ride, age restrictions, a reluctance to link
communities participated in two focus groups, one with 10
a credit card to the app, and fear of being overcharged.
participants and one with 12 participants. Both focus groups
Nearly all focus group members expressed a desire for more
were facilitated and hosted by Self-Empowerment Inc (SEI).
information, including what the e-scooter laws are and how
to use the service.

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.
“I'd really like to see fewer cars everywhere, but the major
Youth expressed that e-scooters were fun and helpful to
thoroughfares are especially dangerous for non-driving travelers
get to after-school activities, especially in the summer when
(peds, bikes, and now scooters).”
their free youth bus pass is inactive. About half of the focus
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,
such as e-scooters.
According to reports from e-scooter companies, only 47 users
were on low-income plans. While two companies stated they FINDING: Among people with disabilities, we heard
offered cash payment plans, they did not report that any users that while e-scooters hold promise as a transportation
option, improperly parked scooters impact access and
signed up for those plans. These small numbers, along with
safety for people with visual impairments and people
staff observations, suggest that companies did not adequately
who use mobility devices.
promote their low-income fares.
Seven Portlanders with disabilities and two City staff with
FINDING: East Portland deployment led to
disabilities participated in one focus group in early November,
e-scooter utilization.
facilitated by staff in Portland’s Office of Equity & Human
East Portland has historically been underserved by the Rights. The participants represented a wide range of mobility,
transportation system, and PBOT was interested in hearing, and vision abilities.
understanding the utility and value of e-scooters in East
Among people with disabilities, we heard that while
Portland. On average, 243 e-scooters were deployed to East
e-scooters might not be a good fit for everyone, having more
Portland (9.8 percent of the total fleet). Though this was
transportation options is a good thing for Portland.
significantly under the 300-scooter minimum requirement,
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.

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
issues. Using the U.S. Environmental Protection Agency’s
Analysis of the PBOT’s user survey suggests that e-scooters
average CO2 emissions per vehicle mile, we estimate that
facilitate mode shift, most notably away from walking, single
during the pilot, e-scooters prevented automobiles from
occupancy vehicles, and ride-hailing. Comparing these
emitting approximately 122 metric tons of CO2, equivalent to
percentages to the total number of scooter miles traveled
removing nearly 27 average passenger vehicles from the road
during the e-scooter pilot (801,887 miles), we estimate that
for a year.
e-scooters replaced approximately 301,856 vehicle miles
E-Scooters replaced approximately

301,856 vehicle miles

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 FINDING: Two companies complied with the citywide
data requirements varied. All companies supplied APIs fleet requirement.
to PBOT, however some key terms were not universally
Companies were required to make 90 percent of their
used and defined, which led to inaccurate data
permitted fleet available per day. Data shows that Bird
reporting by the companies.
and Lime performed the best, deploying almost 100
PBOT required a robust suite of Application Programming percent of their fleet on average throughout the pilot.
Interfaces (APIs) including device availability, trips (start, end, 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
Skip consistently deployed fewer devices due to a
set of data was a primary source for both the findings report
misunderstanding of the requirement, which the Bureau
and company compliance.
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
Compliance was calculated based on data received
speculated. For example, it was discovered toward the end of
through the API from all companies and historical data
the pilot that Bird’s availability data, which was informing our
provided by Bird
compliance dashboards, was underreporting their Portland
fleet. This issue appeared to be the result of undefined terms, FINDING: Only one company complied with the East
thought to be universally understood, which was ultimately Portland fleet requirement.
corrected. To rectify this discrepancy, PBOT asked for historical
PBOT required companies to deploy at least 100
data to supplement what was collected during the pilot to
scooters or 20 percent of their fleet (whichever is less)
produce a more accurate reflection of the pilot for the purpose
in East Portland. Data shows that Bird performed the
of this report.

best, deploying more than 100 percent of the minimum requirements.

required scooters on average throughout the pilot. Both
Companies educated their e-scooter users by listing
Lime and Skip deployed below 90 percent of the minimum
applicable laws in their apps, on their vehicles, and
required scooters on average throughout the pilot.
distributed educational flyers and helmets at events.
Compliance was calculated based on data received
In addition, companies required their users to take a
through the API from all companies and historical data
picture of their parked e-scooter at the end of their trip.
provided by Bird.
PBOT is unclear whether the pictures are monitored by the
FINDING: While companies performed well in companies to ensure users are properly parking e-scooters.
responding to emergency and non-emergency response
FINDING: With regards to deployment locations,
requirements from the City, companies’ complaint data
company compliance improved as the pilot progressed,
was not reported to PBOT’s expectations. Therefore, we
but was still not satisfactory.
are unable to analyze how responsive companies were
to public complaints. PBOT’s permit parking requirements reflect our values of
accessibility for our most vulnerable road users – pedestrians
Lime was the only company to report community-
and people with disabilities. The permit language prohibited
generated complaint data. However, all companies
deployment under 19 conditions.
consistently responded to emergency and non-emergency
requests from the City. Companies had between 20 Major issues included deployments blocking access
and 60 minutes to respond to a City-initiated complaint to transit, blocking access to ADA facilities, blocking
depending on the nature of the complaint. Each company pedestrian throughways, on private property, and in
either met or made a good faith effort to meet these time neighboring jurisdictions.
requirements.
Through frequent management conversations, deployment
FINDING: Companies complied with capping the speed compliance improved as the pilot progressed. The companies
of their e-scooters. However, PBOT staff vehicle testing were quick to respond to specific deployment modifications
suggests several factors affect speed. PBOT requested.
Early in the pilot, a local news outlet reported that
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.
FINDING: Companies complied with user education

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
placed in a New Mobility Account to be used by PBOT for
administration and enforcement; evaluation; safe travel • Pilot Permit Fee: $5,000
infrastructure; and expanded and affordable access.” • Per-Trip Surcharge: $0.25
Together, these permit and ride fees covered project start-

up and program administration costs for the e-scooter pilot,
as well as educational materials and public outreach.
Permits & Fees Expenses

Pre-Pilot Phase Pre-Pilot Phase
n/a $ - Program design $ 48,995
Subtotal $ - Subtotal $ 48,995

Pilot Phase Pilot Phase
Application and Program administration
permit fees $ 15,500 and outreach $ 155,415
Per trip surcharge $ 187,577 Educational materials $ 11,455

Fines and penalties $ 9,000 $
Subtotal $ 212,077 Subtotal $ 166,870

Post-Pilot Phase Post-Pilot Phase
n/a $ - Program evaluation $ 71,417
Subtotal $ - Subtotal $ 71,417

Total Permits & Fees $ 212,077 Total Expenses $ 287,282

Balance
*All figures current through$12/09/2018.
(75,205)



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 less-
polluting 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 February March Early Spring 2020

Public engagement on Draft administrative Solicit and Award permits and Recommendations
key challenges, identify rule and permit review permit launch E-Scooter Pilot 2.0
potential solutions application applications
Throughout E-Scooter
Pilot 2.0: Collect data and
analyze effectiveness of
tested solutions

E-Scooter Findings
Report Appendix
The E-Scooter Findings Report Appendix is available online at: E. Data Analytics Process
https://www.portlandoregon.gov/transportation/e-scooter
F. Climate Reduction Methods
A. New Mobility Shared Electric Scooter Administrative
G. User Survey Results
Rule - TRN-15.01
H. Complaint Form Questions
B. Permit Application
I. Multnomah County Health Department Injury Data
C. TSP Goals
J. DHM Research E-Scooter Pilot Project Survey Report
D. API Data Methodology and Limitations / Assumptions

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

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2018

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

Executive Summary Background and Context 2018 E-Scooter Pilot

E-scooters emerged in 2017 as a new shared mobility service in the

Portland chose a different, proactive path, creating the

Public Engagement and Education Pilot Findings Conclusion and Recommendations

• E-scooters replaced driving and ride-hailing trips.

Executive Summary Background and Context 2018 E-Scooter Pilot

During the pilot, riders took more than 700,000

Public Engagement and Education Pilot Findings Conclusion and Recommendations

Relative to other active transportation options, e-scooters

Executive Summary Background and Context 2018 E-Scooter Pilot

Operationally, e-scooters differ from other new mobility

E-scooters first launched in the U.S. in September 2017. In

Public Engagement and Education Pilot Findings Conclusion and Recommendations

Executive Summary Background and Context 2018 E-Scooter Pilot

Advancing Portland’s Policy Goals

July 23, 2018 – Total miles:

Service area: Average trips

Citywide permitted Average trip

Total trips: Average East Portland

Public Engagement and Education Pilot Findings Conclusion and Recommendations

Figure 1 : E-Scooters Daily Trips and Distances Traveled

Total Distance Total Trips

Pilot Program Regulatory Framework Penalties and Warnings

Executive Summary Background and Context 2018 E-Scooter Pilot

Public Engagement and Education Pilot Findings Conclusion and Recommendations

As the pilot period proceeded, PBOT and participating companies

Executive Summary Background and Context 2018 E-Scooter Pilot

PBOT Education and Engagement

2. Hosted an e-scooter safety event and spoke

3. Educated riders on the street, distributed

4. Placed warning signs at main entry points to the

5. Responded individually to 2,860 comments

2. Dedicated brand ambassadors who

3. Each company was required to have a

Public Engagement and Education Pilot Findings Conclusion and Recommendations

Executive Summary Background and Context 2018 E-Scooter Pilot

• Availability, trip, collision, and complaint data provided

• Injuries and collisions reported by individuals, Portland Police

• ER and urgent care hospital visit data, provided by the

• A User survey authored by PBOT and distributed by

• A Citywide representative poll by DHM Research (results can

• Observational studies of user riding and parking behavior

• Three separate focus groups with Portlanders from the Black

• Community feedback and complaints provided via an online

Public Engagement and Education Pilot Findings Conclusion and Recommendations

Total Number of Trips

Portland City Boundary

East Portland Pattern Area

Executive Summary Background and Context 2018 E-Scooter Pilot

• 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