Moped and Motor Scooter Safety Research · involved rider lost control of the moped either on...

Moped and Motor Scooter

Safety Research

Accident Compensation

Corporation (ACC) and Motorcycle

Safety Advisory Council (MSAC)

T +64 9 974 9820 (Akld) Auckland

Level 8, 57 Fort Street

PO Box 911336

Auckland 1142

New Zealand

Christchurch

30a Carlyle Street

PO Box 25350

Christchurch 8144

New Zealand

www.abley.com

T +64 3 377 4703 (Chch)

F +64 3 377 4700

E [email protected]

Moped and Motor Scooter Safety

Research

Accident Compensation Corporation (ACC) and

Motorcycle Safety Advisory Council (MSAC)

Quality Assurance Information

Prepared for: Accident Compensation Corporation and Motorcycle Safety Advisory Council

Job Number: 4703-00

Prepared by: Wendy Wee, Transportation Engineer

Reviewed by: Dave Smith, Associate

Date issued Status Approved by

Name

18 December 2015 Draft Dave Smith

28 January 2016 Post peer review Dave Smith

This document has been produced for the sole use of our client. Any use of this document by a third party is without liability and you

should seek independent traffic and transportation advice. © No part of this document may be copied without the written consent of

either our client or Abley Transportation Consultants Ltd.

Our Ref: Issue Date: i

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Scooter Safety Report_v2 28 January 2016

Executive Summary

Accident Compensation Corporation (ACC) on behalf of Motorcycle Safety Advisory Council (MSAC)

commissioned Abley Transportation Consultants (Abley) to undertake research to identify the current gaps

in standards for scooters or mopeds that exist for their use from a safety perspective. The key matters to

address include:

1) What are the current New Zealand rules or policies governing the use of a scooter from a

transportation perspective?

2) What are the current statistics on scooter related crashes and injuries?

3) How adequate are these rules and policies in keeping scooter riders safe on the roads?

4) What are some international best practice guidelines on the use of scooters?

5) What areas of safety, regarding scooter riding are missing in New Zealand legislation?

6) What could be done to improve the safety of scooter riders on New Zealand roads?

The term ‘moped’ is historically a term used to describe a motor-assisted bicycle which includes both

pedals and a motor and there are very few of these mopeds still used on the roads in New Zealand. The

New Zealand Transport Agency (NZTA) described a moped as ‘a two-wheeled motor vehicle with an

engine capacity of no more than 50cc or which has an alternative power source (for example, electricity).

Its maximum speed capability is no more than 50km/h’. A moped is not legally defined as a motorcycle in

New Zealand. The NZTA states that small capacity scooters are referred to as ‘step-throughs’ and the

rider can step through the vehicle without obstruction because the petrol tank is not located ahead of the

saddle. Scooters are classified as motorcycles and can have engine capacity ranging from 50cc to 650cc.

In the context of this report all two-wheeled motor vehicles of up to 50cc engine capacity and a top speed

of no more than 50km/h1 are referred to as mopeds to be consistent with the NZTA definition applied for

vehicle licensing, registration and crash reporting purposes.

A review of overseas’ rules and policies identified that there are potential gaps in New Zealand rules and

policies. A qualitative summary that considers the extent to which the rules and policies achieve moped

riders’ safety is shown in the table below. The summary table is largely qualitative wherein the number of

‘ticks’ indicates the extent to which the jurisdiction’s rules and policies restrict the use of mopeds, with

potentially improved safety outcomes.

Rule / Policy Australia Canada UK US NZ

Licensing and Training

Minimum Age

Pillion Passenger

Towing

Vehicle Maintenance and

Inspection

Personal Protective

Equipment

1 http://www.nzta.govt.nz/assets/resources/factsheets/43/docs/43-mopeds.pdf

http://www.nzta.govt.nz/assets/resources/factsheets/43/docs/43-mopeds.pdf

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Overall, the research team identified that there are gaps in the existing New Zealand rules and policies.

These include:

There are no requirements for a car licence holder to complete any moped handling or skills training

to ride a moped on the road, and a car learner licence holder is permitted to learn to ride a moped

without a supervisor.

New Zealand does not impose minimum age requirement for a pillion passenger. The minimum age

of a pillion passenger in Queensland and South Australia is 8 years old.

There is no restriction in New Zealand preventing a learner or restricted licence holder from towing a

trailer using a moped and there is no requirement to limit the towing to the vehicle specifications.

Certification as to the roadworthiness of mopeds and scooters is not required in New Zealand.

There are no mandatory protective equipment requirements other than an approved helmet.

A search of the NZTA Crash Analysis System (CAS) has been undertaken to understand the road safety

history for moped riders for the most recent five-year period from 2010 to 2014. A total of 1,593 reported

crashes were identified during this period. Key points from the crash statistics include:

A total of 6 fatal crashes, 258 serious injury crashes, 978 minor injury crashes and 351 non-injury

crashes were reported over the past five years;

The percentage of moped related crashes (17%), which resulted in death or serious injury, is similar to

the percentage of bicycle-related crashes (18%). The percentage of motorcycle related crashes (30%),

which resulted in death of serious injury, is approximately twice that for moped related crashes;

The peak period for moped crashes was between March and May;

A total of 1,326 crashes (83%) occurred during weekdays and the remaining 267 (17%) crashes

occurred during weekends. This reflects the greater use of mopeds for commuting;

A total of 52% of the reported crashes occurred in major centres such as Auckland, Wellington City or

Christchurch City

Nearly 94% of all moped crashes occurred on urban roads (speed limit of 70km/h or less).

Among the 1,593 reported moped crashes, a total of 1,258 crashes involved multiple vehicles and the

remaining 335 crashes were single moped crashes.

The top three common vehicle movements in a multi vehicle crash are right turn against, crossing

vehicle turning and crossing right turn. In a single moped crash, the most common crash factor

involved rider lost control of the moped either on straight road, or turning left or turning right.

The most common crash factors include poor observation and driver failing to give way.

The latest 11 years of moped or scooter injury data from 2004 to 2014, provided by ACC, was used to

identify injury patterns for moped or scooter user class. There were 2,525 injury claims between 2010 and

2014 which is approximately twice the number of reported injury crashes in CAS define CAS between

2010 and 2014 (acknowledging that all fatal crashes are reported in CAS). This suggests that there may

be approximately 50% of moped injury crashes under reported in CAS.

The most common injury type was the lower extremity of the body (leg/ knee/ ankle/ foot) which accounted

of 39% of injury claims. The second highest injured part of the body is the upper extremity (hand/ wrist/

arm) with 25%.

The research team consulted with key stakeholders including statutory or regulatory agencies and

community interest groups. The key stakeholders include:

New Zealand Police

New Zealand Transport Agency (NZTA)

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Motorcycle Safety Advisory Council (MSAC Council Member)

New Zealand Automobile Association (AA)

Canterbury Scooter Club (Canscoot)

New Zealand Classic Scooter Club

Scoot NZ (New Zealand’s scooter magazine)

Insurance Council of New Zealand (ICNZ).

The stakeholders identified were contacted via email or telephone and the response rate from the above

list of stakeholders was 75% (6 of 8 responses). The comments received from the consultation generally

align with the findings from the review of existing rules and policies. There are three key points from the

stakeholder consultation which include:

There is a lack of training or road experience for moped or scooter riders, in particular, for a car learner

licence holder in New Zealand;

There are a number of poorly-maintained mopeds operating on New Zealand roads and the majority of

stakeholders stated a preference for mandatory Warrant of Fitness (WOF) certification for mopeds and

scooters;

Most stakeholders agree that moped riders often do not have adequate personal protective equipment

such as gloves, proper footwear and clothing compared to motorcycle riders. This could be associated

with the existing rules that do not require moped or scooter riders to wear protection gear other than an

approved helmet.

New rules and policies could be introduced into the regulations or licensing system to address the gaps

identified to improve moped safety in New Zealand. These potential rules and policies include introducing:

Measures to improve awareness as to the benefits of having appropriate riding gear through a

mandatory theory test and/or skills course which may be linked to the licensing process.

Mandatory on-road training in the licensing process for car licence holders who want to ride a moped or

scooter. This may include imposing restrictions or conditions on inexperienced licence holders to have

a qualified supervisor when riding.

A WOF certification to ensure the roadworthiness of the vehicle including lights, tyres and brake

function;

A minimum age requirement for a pillion passenger, and

A restriction for moped riders towing a trailer dependant on vehicle specifications and rider’ experience.

There is little evidence of crashes or crash-related injuries occurring where pillion passengers or trailers

are involved, therefore it is recommended that the first three measures be prioritised for further

consideration. Whilst there was similarly little evidence regarding poor condition of mopeds being a

contributing factor, concerns were raised during stakeholder consultation about the poor condition of some

mopeds on New Zealand roads. The crash and injury analysis noted that errors made by moped riders and

rider inexperience contributed to a significant number of crashes, and injuries to extremities which may

have been avoided or mitigated through personal protective equipment were also prevalent.

The research team recommends that ACC build upon the findings of this research by undertaking further

investigation into the potential effectiveness of crash and/or injury severity reduction realised by

implementing the first three measures as a high priority. The resulting analysis would provide the

foundation for a business case to prioritise and support the introduction of some of all of these measures.

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Contents

1. Introduction 1

1.1 Definition of mopeds and motor scooters 1

1.2 Methodology 1

2. Existing Rules and Policies 3

2.1 Licensing, Minimum Age and Training Requirements 3

2.2 Pillion Passenger 6

2.3 Towing 7

2.4 Vehicle Maintenance and Inspection 8

2.5 Personal Protective Equipment 9

2.6 Summary 9

3. Crash Statistics 12

3.1 Monthly, daily and hourly characteristics 14

3.2 Geographic Location 15

3.3 Road Type and Crash Scenario 15

3.4 Crash Movements and Factors 17

3.5 Summary 18

4. ACC Injury Claims 19

4.1 Crash Attributes 20

5. Stakeholder Consultation 21

5.1 Licensing, Training and Education 21



5.4 Other Issues 22

5.5 Summary 23

6. Conclusions 24

6.1 Licensing, Training and Education 24



6.4 Road Safety Rules 25

7. Recommendations 26

8. References 27

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Tables

Table 2.1 Summary of Rules and Policies 11 Table 3.1 Number of reported moped, motorcycle and bicycle

crashes (2010 - 2014) 13 Table 3.1 Number of reported crashes by location 15 Table 3.2 Moped crashes on urban roads (speed limit of 70km/h or

less) and open roads 16 Table 3.3 Common crash movements that account for more than 5%

of all reported moped crashes 17

Figures

Figure 2.1 Options for getting motorcycle licence in New Zealand 4 Figure 3.1 Number and severity of reported moped crashes 12 Figure 3.2 Percentage of moped crashes by injury type including

under-reporting factors 13 Figure 3.3 Severity of crashes in New Zealand by vehicle type (2010

- 2014) 13 Figure 3.4 Crash profile by month (2010 – 2014) 14 Figure 3.5 Total Crashes by Time of Day 15 Figure 3.6 Moped Rider Fault in Crashes 16 Figure 3.7 Reported moped crashes in which moped had the

primary responsibility for the crash 17 Figure 4.1 Claims by injury contact (2004-2014) 19 Figure 4.2 Claims by injury for the financial year 2004-14 19 Figure 4.3 Claims by injury cause for financial year 2004-2014 20

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1. Introduction

Accident Compensation Corporation on behalf of Motorcycle Safety Advisory Council (MSAC)

commissioned Abley Transportation Consultants (Abley) to undertake research to identify the current gaps

in standards for scooters or mopeds that exist for their use from a safety perspective. The key matters to

address include:

1) What are the current New Zealand rules or policies governing the use of a scooter from a

transportation perspective?

2) What are the current statistics on scooter related crashes and injuries?

3) How adequate are these rules and policies in keeping scooter riders safe on the roads?

4) What are some international best practice guidelines on the use of scooters?

5) What areas of safety, regarding scooter riding are missing in New Zealand legislation?

6) What could be done to improve the safety of scooter riders on New Zealand roads?

1.1 Definition of mopeds and motor scooters

The term ‘moped’ is historically a term used to describe a motor-assisted bicycle which includes both

pedals and a motor and there are very few of these mopeds still used on the roads in New Zealand. In

some countries, a moped is described as a limited-speed motorcycle. The New Zealand Transport

Agency (NZTA) described a moped as ‘a two-wheeled motor vehicle with an engine capacity of no more

than 50cc or which has an alternative power source (for example, electricity). Its maximum speed is no

more than 50km/h’. A moped is not legally defined as a motorcycle in New Zealand.

The NZTA states that small capacity scooters are referred to as ‘step-throughs’ as the rider can step

through the vehicle without obstruction because the petrol tank is not located ahead of the saddle. Motor

scooters that have an engine capacity ranging from 50cc to 650cc are classified as motorcycles2.

There is diversity among mopeds or motor scooters and their riders and some element of confusion

around the specific definitions of each. In an international context, the definition of a moped or motor

scooter may vary depending on the jurisdiction. In most jurisdictions, the engine displacement of a moped

is no more than 50cc, which is similar to the NZTA’s definition, but the top speed restrictions may vary.

This report focuses on the typical mopeds or scooters found on the road that is most similar to that defined

using the NZTA description of a moped to enable a direct comparison against current New Zealand

legislation. In the context of this report all two-wheeled motor vehicles of up to 50cc engine capacity and a

top speed of no more than 50km/h3 are referred to as mopeds to be consistent with the NZTA definition

applied for vehicle licensing, registration and crash reporting purposes. This does not include three-

wheeled vehicles, mobility scooters or powered wheelchairs.

1.2 Methodology

A literature review was conducted by undertaking an extensive search of international transport agency

websites and road safety literature to identify and summarise international rules and policies governing the

use of mopeds and where available, their effectiveness. The overseas’ rules or policies were then

compared to the rules and policies that currently govern the use of a moped in New Zealand.

2 https://www.nzta.govt.nz/resources/roadcode/motorcycle-road-code/you-and-your-motorcycle/about-motorcycles/

3 http://www.nzta.govt.nz/assets/resources/factsheets/43/docs/43-mopeds.pdf

https://www.nzta.govt.nz/resources/roadcode/motorcycle-road-code/you-and-your-motorcycle/about-motorcycles/



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The objective of the literature review was to identify safety gaps in the New Zealand legislation and

subsequently identify what could be done to improve the safety of moped riders.

Moped-related crash data, for the period of 2010 to 2014, was obtained from the New Zealand Transport

Agency’s Crash Analysis System (CAS). The purpose is to identify key crash causes and contributing

factors.

The outcomes of consultation with key stakeholders are also reported which include statutory or regulatory

agencies and community interest groups. The stakeholders identified were contacted via email or

telephone. The comments received from the consultation coupled with the literature review were used to

inform how adequate the existing rules and policies are in keeping moped riders safe on the roads and

identify what could be done to improve the safety of moped riders on New Zealand roads.


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2. Existing Rules and Policies

Existing rules and policies governing the use of mopeds in New Zealand and other countries are presented

in this section. A number of countries were identified as having similar transport environments to New

Zealand including Australia, Canada, the United Kingdom (UK) and United States (US). The countries and

corresponding states or provinces that were included in the literature review based on the accessibility of

the corresponding legislation information include:

Australia (Queensland, New South Wales and South Australia)

Canada (Quebec and Ontario)

United States (Michigan, Virginia, New Jersey and Washington)

United Kingdom

Canada (Quebec and Ontario)

The legislation reported in this section does not necessarily reflect what may be considered to be

‘international best practice’ but instead represents the current statutory requirements in other international

jurisdictions.

2.1 Licensing, Minimum Age and Training

Requirements

New Zealand

Although New Zealand does not have a specific licence class for mopeds, riders are required to hold a

either a car or motorcycle licence to ride a moped that is no more than 50cc or has a maximum speed of

50km/h. The car or motorcycle licence can be either a learner, restricted or full licence. A motorcycle

licence is required to ride a two wheeled motor vehicle that is 50cc or more or has a maximum speed of

more than 50km/h. There are no apparent reasons for the different requirements to ride a two-wheeled

vehicle of no more than 50cc and maximum speed of 50km/h.

Applicants are required to be at least 16 years old to apply for a car learner licence and must pass a theory

test. The minimum age to apply for a learner licence in New Zealand is 16 years old which is generally

consistent with overseas’ minimum age requirements. However, there is no requirement for a car learner

licence holder to complete any moped handling or skills test prior to riding a moped on the road. A car

learner licence holder is only required to display an L-plate and does not need a supervisor when learning

to ride a moped4.

Figure 2.1 illustrates the options for getting a motorcycle licence in New Zealand.

4 https://www.nzta.govt.nz/assets/resources/factsheets/45/docs/45-learning-to-drive.pdf

https://www.nzta.govt.nz/assets/resources/factsheets/45/docs/45-learning-to-drive.pdf


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Figure 2.1 shows that there are three motorcycle licence stages (learner, restricted and full) and a rider is

required to complete a Basic Handling Skills Test (BHST) to apply for a motorcycle learner licence. To

advance to the next stage of getting a restricted motorcycle licence, a rider is required to pass either a

Competency-Based Training and Assessment or a Practical Test.

The research team identified that there is a current gap in New Zealand training requirements, in

particular, for a car learner licence holder who is permitted to operate a moped without any on-road skills

or supervision. The holder of a motorcycle learner licence will have at least completed a BHST while there

is no requirements for a car learner licence to complete any handling skills.

A scooter training course (Scooter Survival Course) is available in New Zealand. However, it is optional

and is aimed at moped riders riding in urban environments. The four-hour course is delivered by NZTA-

accredited instructors and is an ACC initiative to reduce scooter-related injuries.

The Land Transport (Road User) Rule 2004 Clause 2.12(1) states that “a driver must not enter a motorway

except at an opportunity and at a speed that will place the driver correctly in the stream of traffic without

danger to any other user of the motorway”. Accordingly, mopeds or motor scooters are not permitted on

motorway which has high speed restrictions.

Australia

The licensing requirements in Australia are defined by each state. A moped[1]

rider in Queensland is

required to hold either a car licence (Class C) or a motorcycle licence (Class RE or Class R). These are

equivalent to a New Zealand car licence (Class 1) and a motorcycle licence (Class 6).

[1] A moped is classified as a motorcycle with an engine capacity that does not exceed 50mL and has a manufacturer top rated speed of

not more than 50km/h.

Figure 2.1 Options

for getting

motorcycle licence

in New Zealand


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An applicant, in Queensland, needs to be at least 16 years old to apply for a car learner licence and is

required to hold a provisional, probationary or open car licence for at least one year to apply for a

motorcycle learner licence[2]. This gives riders the opportunity to gain on-road experience under

comparatively low-risk conditions (driving a car). The holder of a car learner licence is required to be

supervised, by a person who holds an open car licence or has a motorcycle licence, when riding. Although

not specifically stated in the Queensland legislation, a scooter is described as a step-through style

motorcycle that has an engine capacity of 50mL or more and/or 50km/h maximum speed. Riders are

required to hold a motorcycle licence (either a Class RE or Class R) to ride a scooter. A Class RE licence

is required, at a minimum, to ride a Learner Approved Motorcycle (LAM) scheme scooter and a class R

licence is required to ride a scooter that is not LAM scheme approved.

In New South Wales, riders are required to hold a motorcycle licence (Class R) irrespective of the

motorcycle engine size. Riders are required to pass a two-day pre-learner course and rider knowledge

test to be issued a motorcycle learner licence. Applicants need to be at least 16 years and nine months

old to apply for a motorcycle learner licence however, applicants are allowed to attend the pre-learner

course at the age of 16 years and six months old.

In South Australia, riders are required to possess either a provisional driver’s licence or a Class R-Date

(motorcycle or trike) or Class R (motorcycle) learner’s permit to ride a moped5. Applicants need to be at

least 16 years old to apply for a motorcycle learner’s permit and are required to pass Rider Safe basic

training. To obtain a provisional (P1) driver’s licence, applicants are required to complete at least 75 hours

of supervised driving in a range of conditions with at least 15 hours at night.

Canada

Mopeds6 are not considered motorcycles under the Highway Traffic Act in Ontario, Canada. However,

moped riders must have a motorcycle licence (Class M) to operate a moped because moped riders are

required to have the same type of riding skills as a motorcycle rider. A limited-speed motorcycle (LSM) is

described as a motorcycle which is typically petrol powered, has a maximum speed of 70km/h and has a

step-through design and automatic transmission7. Similarly, a motorcycle licence (Class M

8) holder is

required to ride a LSM.

New riders applying for a motorcycle licence in Ontario, are required to enter Ontario’s graduated licensing

system which has three levels of motorcycle licence (class M1, M2 and M3). Riders need to be at least 16

years old and have passed a vision and written test to enter level one and get a class M1 licence.

Subsequently, riders must pass two road tests to be fully licenced. Passing the level one road test gives

the rider a class M2 licence and the rider moves to level two, and passing another road test gives the rider

a full motorcycle licence.

Moped or motorised scooter riders in Quebec must hold either a moped or scooter licence (class 6D) or

any other class of driver’s licence or probationary licence, except a farm tractor licence (class 8). The

holder of a moped or scooter licence (class 6D) is only allowed to ride a moped or scooter which is defined

as a passenger vehicle having two or three wheels and a maximum speed of 70km/h and cylinder capacity

of not more than 50cc with automatic transmission. Riders are required to pass a six-hour driving course,

a knowledge test and a vision test to obtain a class 6D licence in Quebec. The minimum age to apply for a

moped (class 6D) licence and a passenger vehicle licence (class 5) are 14 years old and 16 years old

[2] http://www.qld.gov.au/transport/licensing/driver-licensing/applying/learner/index.html

5 A moped is defined as a two-or three-wheeled motor vehicle (other than a power-assisted bicycle) that is capable of a speed not

exceeding 50km/h and is propelled by an internal combustion engine with a capacity not exceeding 50mL or a motor other than an internal combustion engine. 6 Mopeds also known as a motor-assisted bicycles

7 http://www.mto.gov.on.ca/english/handbook/motorcycles/section1-3-0.shtml

8 Equivalent to a motorcycle licence (Class 6) in New Zealand

http://www.tmr.qld.gov.au/Licensing/Getting-a-licence/Getting-a-motorbike-licence.aspx

http://www.qld.gov.au/transport/licensing/driver-licensing/applying/learner/index.html

http://www.mto.gov.on.ca/english/handbook/motorcycles/section1-3-0.shtml


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respectively. However, written consent from a person with parental authority is required if the applicant is

under 18 years old.

United Kingdom

Moped licence (category AM) holders in the United Kingdom (UK) are permitted to ride a moped of up to

50cc and with a maximum speed of 45km/h9. Applicants must be at least 16 years old to apply for a

moped licence. The research team did not identify any specific definition of scooter in the UK legislation.

However, riders must be at least 17 years old and hold a motorcycle licence to ride a motorcycle of more

than 50cc and up to 125cc.

A rider can ride a moped without L plates and without taking the full motorcycle test if they are at least 16

years old and have a car driving licence and a compulsory basic training (CBT) certificate, or has passed

the driving test before 1 February 2001. Riders are required to complete a CBT course to confirm their full

moped licence if they passed their car driving test on or after 1 February 2001. The CBT involves practical

on-site and on-road training and riding.

United States

The licensing rules in the United States (US) vary across the country. There is no specific licence

requirements in Virginia to ride a moped which has a maximum speed of less than 35mph (56km/h).

However, riders are required to be at least 16 years old and carry a government-issued photo ID which

does not have to be a driver’s licence. Some form of state or federal identity card or passport with details

such as the rider’s name and address is acceptable.

In Michigan, a person may apply for a moped licence if the applicant is at least 15 years old and does not

have a valid operator or chauffeur licence. An applicant must pass vision, knowledge and traffic sign tests

to obtain a moped licence. However, applicants are not required to pass a driver education course or a

driving skills test to operate a moped. Applicants under the age of 18 years old must provide parent or

legal guardian signature when applying for a moped licence.

The minimum age to ride a moped10

(motorised bicycle) in New Jersey is 15 years old. However, riders

are required to have a valid moped, motorcycle or basic driver licence which requires riders to pass

knowledge test, vision test and a road test.

In Washington, riders are required to be at least 16 years old and possess a driver’s licence to operate a

motorcycle or scooter that is 50cc or smaller and has a maximum speed of 30mph (48km/h). A two-wheel

endorsement or permit is required to operate a motorcycle or scooter that is larger than 50cc or can go

faster than 30mph (48km/h). There are two options to obtain a two-wheel endorsement or permit; an

applicant can either complete a motorcycle safety course or pass a knowledge and riding skills test to

obtain a two-wheel endorsement or permit.

2.2 Pillion Passenger

New Zealand

In New Zealand, learner and restricted motorcycle licence holders are not allowed to carry a passenger.

Full motorcycle licence holders may carry one pillion passenger including a child. However, the pillion seat

9 https://www.gov.uk/guidance/the-highway-code/annex-2-motorcycle-licence-requirements

10 A moped is defined as a pedal bicycle with a helper motor, electric or gas-powered, capable of a maximum speed of no more than

25mph (40km/h) and has a maximum displacement of less than 50cc.

https://www.gov.uk/guidance/the-highway-code/annex-2-motorcycle-licence-requirements


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is required to protect the child’s legs from the wheels. A learner driver licence holder, learning to ride a

moped, is also not permitted to carry a passenger.

A pillion passenger is required to wear an approved helmet, sit astride a safe pillion seat, facing forwards,

and have both feet on footrests. New Zealand does not impose a minimum age requirement for pillion

passengers.

Australia

In Queensland, learner licence holders riding a class RE motorcycle or provisional or open licence holder

riding a class R motorcycle to learn to ride are not permitted to carry a pillion passenger including a

supervisor. The supervisor may be seated in a sidecar, on another motorcycle, in a car or other vehicle.

Only moped riders who have held a motorcycle licence (either a Class RE or R) are permitted to carry a

pillion passenger after holding the licence for a year. A car learner licence holder (Class C) must be

supervised, by a person who holds an open class car or a motorcycle licence and has held this licence for

at least a year. Riders are only permitted to carry a pillion passenger who is at least eight years old.

In South Australia, learner licence holders are not permitted to carry a pillion passenger unless the person

is acting as a Qualified Supervising Driver. Pillion passengers are also required to be at least eight years

old.

Depending on the licence class in New South Wales, Learner and Provisional P1 licence holders are not

permitted to carry a pillion passenger.

Canada

In Quebec, moped riders under the age of 16 years old are prohibited from carrying a pillion passenger. It

is illegal for learner motorcycle licence holders (Level One (M1)) to carry passengers in Ontario. Even with

a Level Two (M2) licence, riders should avoid carrying passengers or large loads until they are sufficiently

experienced.

United Kingdom

Under Rule 85 of The Highway Code, riders are allowed to carry one pillion passenger who must sit

astride the machine on a proper seat with both feet on the footrests. A pillion passenger is only permitted

if the vehicle is designed to carry a passenger. Provisional licence holders are not allowed to carry a

pillion passenger.

United States

The legal status regarding carrying pillion passengers varies between states. It is illegal to carry a pillion

passenger on a moped in New Jersey because it is considered unsafe due to the limited power, strength

and handling ability of mopeds. In Washington and Michigan, riders are restricted to carrying one pillion

passenger.

2.3 Towing

New Zealand

It is illegal for a learner or restricted licence holder to tow another vehicle in New Zealand. However, it is

not specified that learner or restricted licence holders cannot tow a trailer. This means that learner or

restricted licence holders could tow a trailer using a moped.


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Australia

In New South Wales, learner and provisional (P1) motorcycle licence holders are not allowed to tow a

trailer or other vehicle. The legal status in South Australia is based on the vehicle specifications. Riders

need to ensure that the weight of the trailer and load does not exceed the maximum towed weight

specified by the manufacturer of the motorcycle. If the motorcycle manufacturer does not specify a towing

capacity, the loaded mass of a trailer must not exceed the un-laden mass of the motorcycle.

Canada

In Ontario, mopeds are not permitted to tow a trailer due to the limited engine size (maximum of 50cc)

United Kingdom

In the UK, mopeds are not allowed to tow a trailer and only motorcycles with an engine size of 125cc or

more are permitted to tow a trailer.

United States

The research team did not identify any specific regulations that restrict a moped rider from towing a trailer

in the US.

11.

2.4 Vehicle Maintenance and Inspection

New Zealand

A formal moped inspection or warrant of fitness (WOF) is not required for a moped in New Zealand.

However, the rider is responsible to ensure the moped is roadworthy by ensuring the moped is fitted with

equipment that complies with the law and safe to be used. These include12

:

Good quality tyres with visible tread pattern across ¾ of the tread width and around the entire

circumference;

A working horn that can be heard by other road used from at least 100 metres away (in normal

conditions);

Mudguards (if it is practical to fit them);

An exhaust system, in good condition, that is not excessively noisy;

Adequate footrests or pedals for the rider and any pillion passenger;

At least one service brake on each wheel;

One or two low beam headlamps

At least one red rear-facing lamp and reflector that can be seen from 100 metres away;

One or two rear stop lamps or brake lights (if the moped was first registered in New Zealand on or after

1 January 1991);

A rear view mirror (if the moped was manufactured on or after 1 July 2000).

11 https://www.sa.gov.au/topics/transport-travel-and-motoring/motoring/motorcycling/motorcycles/motorcycles-and-sidecar-

requirements#title13 12



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Australia

In Queensland Australia, a roadworthy or safety certificate must be displayed on the scooter or moped

throughout the sale process and at the time of sale. The inspection covers the basics for the safe

operation of the vehicle.

Mopeds are exempt from Safety Standards Certificate in Ontario, Canada. Similarly, motorcycles are not

subject to any safety inspection in some states in the United States (Michigan, New Jersey and Virginia).

2.5 Personal Protective Equipment

New Zealand

In New Zealand the only mandatory personal protective equipment for moped riders and passengers is an

approved helmet. Moped riders are not required to wear eye protectors in New Zealand.

Australia

All riders must wear Australia Standard approved helmets in Queensland, New South Wales and South

Australia.

Canada

Ontario law requires moped and motorcycle riders and passengers to wear approved helmets. In Quebec,

riders are recommended to wear13

:

a helmet that meets standards, with a visor or protective goggles;

a vest or long pants made of leather or an anti-abrasive material, such as Kevlar or Cordura;

leather gloves that cover the wrists; and

flat-heeled, anti-skid boots that cover the ankle.

United Kingdom

Both rider and pillion passenger are required to wear a protective helmet. It is also advisable in the UK to

wear eye protectors that comply with the regulations.

United States

The requirements for moped or scooter riders to wear protective equipment vary from state to state in the

United States. It is compulsory to wear approved helmets in New Jersey and Washington. In Michigan,

operators under the age of 19 years are encouraged to wear approved helmets and other proper clothing.

Riders are required to wear eye protection in Virginia and Washington if the moped does not have a

windshield.

2.6 Summary

Table 2.1 shows a summary of existing rules and policies in New Zealand compared or and with other

countries. The summary is largely qualitative and subjective wherein the number of ‘ticks’ indicates the

extent to which the jurisdiction’s rules and policies restrict the use of mopeds and scooters, with potentially

improved safety outcomes.

13 http://www.saaq.gouv.qc.ca/en/documents/pdf/driver_licence/html/prospect_moped.html


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Our Ref: Appendix A Issue Date: 11

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Scooter Safety Report_v2

Rules and Policies Summary

Table 28 January 2016

Rule / Policy Australia Canada UK US New

Zealand

Comments

Licensing

and Training

Car learner licence holders in New Zealand can ride a moped or scooter without supervision.

In Australia (New South Wales), a motorcycle licence is required regardless of the motorcycle engine size.

In Canada (Ontario), a motorcycle licence is required to operate a moped or limited-speed motorcycle.

In UK, driver licence holder can operate a moped after completing a training course.

In the US, there is no licence requirement to ride a moped in Virginia.

Minimum

Age

The minimum age is 16 years old in New Zealand to ride a moped which is generally consistent with Australia and UK.

The minimum age in Canada (Quebec) is 14 years old, however written consent from parent or legal guardian is required.

In the US, the minimum age in Michigan and New Jersey is 15 years old to ride a moped. Written consent from a parent

or legal guardian is required in Michigan for applicants under 18 years old.

Pillion

Passenger In South Australia and Queensland, a pillion passenger on a moped or motor scooter must be at least 8 years old.

Towing

In Australia (New South Wales), learner and provisional licence holders are not permitted to tow a trailer or a vehicle. The

ability to tow a trailer in South Australia is based on the vehicle specifications.

In Canada (Ontario) and UK, mopeds are not allowed to tow a trailer.

Mopeds in New Zealand can be used to tow a trailer.

Vehicle

Maintenance

and

Inspection

An inspection is required for registration renewal of all motorcycles in New South Wales (Australia). A Roadworthy or

Safety Certificate must be displayed on a scooter or moped throughout the sale process.

In New Zealand, a moped does not need a Warrant of Fitness (WOF) certification which is consistent with Canada

(Ontario), UK and US.

Personal

Protective

Equipment

In New Zealand, a moped rider is only required to wear an approved helmet which is generally consistent with other

countries.

In some states in the US, riders are required to wear an approved helmet and also eye protectors if the vehicle does not

have a windshield.

Table 2.1 Summary of Rules and Policies


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As a summary, the following gaps have been identified by the research team between New Zealand and

international legislation:

1) There are no requirements for a car licence holder to complete any moped handling or skills training

to ride a moped on the road, and a car learner licence holder is permitted to learn to ride a moped

without a supervisor.

2) New Zealand does not impose minimum age requirement for a pillion passenger. The minimum age

of a pillion passenger in Queensland and South Australia is 8 years old.

3) There are no restrictions in New Zealand that prevent a learner or restricted licence holder from

towing a trailer using a moped and there is no requirement to limit towing to the vehicle specifications.

4) Certification of the roadworthiness of a moped such as a Warrant of Fitness (WoF) is not required in

New Zealand. The rider needs to ensure the vehicle is roadworthy.

5) There is no mandatory protective equipment requirement other than an approved helmet.


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3. Crash Statistics

The NZTA Crash Analysis System (CAS) has been analysed to understand the crash history for moped

riders for the most recent five-year period from 2010 to 2014. The crash data only includes reported

moped crashes by the New Zealand Police. The CAS user guide does not include a definition for moped

however for the purposes of this research it is assumed that the definition will largely align with the NZTA

general definition reported in section 1.1 of this report.

A total of 1,593 crashes were identified from CAS during this period, of which 80% of these occurred at an

intersection14

with the remaining 20% at midblock locations. The number of crashes ranged from 292

crashes to 343 crashes per year. A total of 6 fatal crashes, 258 serious injury crashes, 978 minor injury

crashes and 351 non-injury crashes were reported over the five-year period as shown in Figure 3.1.

The research team note that CAS historically under-reports crash statistics especially for minor injury and

non-injury crashes. The NZTA Economic Evaluation Manual (EEM) provides guidance for under-reporting

of crashes in 50-70 km/h environments (refer Table A6.20(a) of EEM) which indicates that for non-

pedestrian modes there may be 50% more serious injury, 175% more minor injury and as much as 600%

more non-injury crashes.

The impact of the under-reporting factors for no-fatal crashes is represented in Figure 3.2 which illustrates

that less than 10% of moped crashes over the past five years were serious injury crashes. The research

team acknowledge that the guidelines provide within the EEM to account for under-reporting are not

specific to mopeds, subsequently Figure 3.2 only approximates the split of moped crashes by injury

severity.

14 Includes all reported crashes within 50m of an intersection

0

50

100

150

200

250

300

350

400

2010 2011 2012 2013 2014

No

. of

Cra

shes

Year

Non-Injury Minor Injury Serious Injury Fatal InjuryFigure 3.1 Number

and severity of

reported moped

crashes


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The NZTA CAS system was also used to obtain the number of reported motorcycle or bicycle crashes

from 2010 to 2014. Table 3.1 shows the total number of crashes for moped, motorcycle and bicycle

including the number of crashes which resulted in death or serious injury.

Vehicle Type Total number of crashes Death or serious injury crashes

Moped 1,593 264 (17%)

Motorcycle 6,232 1,839 (30%)

Bicycle 5,144 915 (18%)

Table 3.1 shows that the number of reported moped crashes over the five year period is lower compared

to the number of reported motorcycle or bicycle crashes. Similarly, the number of moped related crashes

which resulted in death or serious injury is also the lowest compared to motorcycle or bicycle related

crashes.. The percentage of crash severity for moped, motorcycle and bicycle related crashes is shown in

Figure 3.3.

17%30%

18%

83%70%

82%

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

100%

Moped Motorcycle Bicycle

Pro

po

rtio

n o

f cr

ash

es

Death or serious injury crashes Minor or non-injury crashes

Figure 3.2

Percentage of

moped crashes by

injury type

including under-

reporting factors

Figure 3.3

Severity of crashes

in New Zealand by

vehicle type (2010

- 2014)

Table 3.1 Number

of reported moped,

motorcycle and

bicycle crashes

(2010 - 2014)


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Figure 3.3 shows that the percentage of moped related crashes (17%) which resulted in death or serious

injury is similar to the percentage of bicycle-related crashes (18%). The percentage of motorcycle related

crashes (30%), which resulted in death of serious injury, is approximately double compared to moped

related crashes.

3.1 Monthly, daily and hourly characteristics

The 1,593 reported moped crashes over the five-year period equates to an average of 133 moped crashes

per month (or an average of 27 crashes in any given year).

The monthly profile of the number of crashes aggregated across the five-year period (solid orange line)

and the average number of crashes per month (dashed grey line) are shown in Figure 3.4.

As can be seen from Figure 3.4, the period between March and May was the peak period for moped

crashes reported between 2010 and 2014.

A total of 1,326 crashes (83%) occurred during weekdays and the remaining 267 (17%) crashes occurred

during weekends. This may in part reflect the greater use of mopeds for commuting but also the higher

risk exposure during busy peak periods. Figure 3.5 illustrates that the peak periods for crashes in the

weekdays are from 8am to 9am and 3pm to 6pm which coincide with the peak commuting periods. The

peak times for moped crashes during the weekend are between 12 noon and 7pm.

0

20

40

60

80

100

120

140

160

180

200

Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

No

. of

Cra

shes

Month

Figure 3.4 Crash

profile by month

(2010 – 2014)


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3.2 Geographic Location

A total of 52% of the 1,593 reported moped crashes from 2010 to 2014 occurred in major centres such as

Auckland, Wellington City or Christchurch City as shown in Table 3.1. If the Wellington City statistics were

expanded to include Greater Wellington, an additional 32 crashes would be included in the analysis.

Territorial Local Authority No. of crashes Percentage of Crashes

Auckland 495 31%

Wellington City 138 9%

Christchurch City 194 12%

Other 766 48%

TOTAL 1,593 100%

3.3 Road Type and Crash Scenario

The 2010 to 2014 moped crash statistics presented in Table 3.2 show that nearly 94% of all reported

moped crashes occurred on urban roads with a speed limit of 70km/h or less. The high proportion of

crashes on urban road reflects moped usage being higher in lower speed environments. Table 3.2 shows

that a total of 264 crashes resulted in fatal or serious injury and 90% of these crashes occurred on urban

roads. Among the 1,593 reported moped crashes, a total of 1,258 (79%) crashes involved multiple

vehicles and the remaining 335 crashes were single moped crashes.

Figure 3.6 shows the proportion of crashes, from 2010 to 2014, where a moped rider is considered

primarily at fault, partially at fault or not-at-fault by the reporting officer. The statistics are also broken

down into multi and single vehicle crashes. Of the 79% reported multi-vehicle crashes including a moped,

the moped has been identified as not-at-fault in 51% of those crashes, primarily responsible in 25% and

partially responsible in 3%. The remaining 21% of reported crashes involve no other vehicles

0

20

40

60

80

100

120

140

160

180

0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23

No

. of

Cra

shes

Hour Beginning

Weekday Weekend

Table 3.1 Number

of reported

crashes by location

Figure 3.5 Total

Crashes by Time

of Day


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Injury Urban Road Open Road

Single Vehicle Multiple Vehicle Single Vehicle Multiple Vehicle

Fatal Injury 1 3 0 2

Serious Injury 54 180 15 9

Minor Injury 209 718 21 30

Non-Injury 32 307 3 9

TOTAL 296 1,208 39 50

1,504 89

.

Figure 3.7 shows that moped rider has the primary responsibility in 83% of all reported fatal crashes. For

serious injury and minor injury crashes, moped riders are primarily responsible for 45% to 50% of the

crashes and the comparable figure for non-injury crashes is 40%.

Figure 3.6 Moped

Rider Fault in

Crashes

Table 3.2 Moped

crashes on urban

roads (speed limit

of 70km/h or less)

and open roads


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3.4 Crash Movements and Factors

A vehicle movement is assigned to each crash in CAS. Table 3.3 summarises the four most common

crash movements associated with the reported moped crashes between 2010 and 2014.

Vehicle

Movement

No. of

crashes

(%)

Fatal or

Injury

Crashes

Description

308

(19%)

256 Right turn

against

Multi vehicle crash where the other vehicle

has turned across the path of the moped.

The moped rider has the primary

responsibility in only 4% of these crashes.

146

(9%)

115 Crossing

vehicle

turning


pulls out and turns across the path of the

moped. The moped rider has the primary


134

(8%)

106 Crossing

Right turn


pulls out into the path of the moped.

Moped riders have the primary


89 (6%) 78 Lost

control

Single vehicle crash where the moped rider

loses control on straight roadway.

The top three common vehicle movements in a multi vehicle crash are right turn against, crossing vehicle

turning and crossing right turn. In a single moped crash, the three most common crash factors involved a

rider losing control of the moped either on straight road, or turning left or turning right.

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

100%

Fatal Injury Serious Injury Minor Injury Non-injury

Open Road, Single Vehicle Crash Open Road, Multiple Vehicle Crash

Urban Road, Single Vehicle Crash Urban Road, Multiple Vehicle Crash

Figure 3.7

Reported moped

crashes in which

moped had the

primary

responsibility for

the crash

Table 3.3

Common crash

movements that

account for more

than 5% of all

reported moped

crashes


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Unlike crash movements where only one crash movement is assigned to each crash, several crash factors

can be associated with a crash. The crash factors could be associated with the moped rider or the driver

of another vehicle in a multi vehicle crash. The description of the 10 most common crash factors, based

on NZTA’s Guide for the interpretation of coded crash reports from the crash analysis system (2014), and

the associated percentage of crashes are listed below.

Did not see or look for another party until too late when required to give way to traffic from another

direction (19%)

Failed to give way when turn into non-turning traffic (18%)

Failed to give way at Give Way sign (13%)

Failed to notice another party until it was too late behind when changing lanes, position or direction of

travel (includes U-turns) (9%)

Failed to notice another party until it was too late when visibility obstructed by other vehicle (8%)

Inexperience (8%)

In line of traffic following too closely (8%)

Inattentive: failed to notice vehicle slowing, stopping or stationary in front (6%)

Entering or leaving private house / farm (6%)

Alcohol test above limit or test refused (5%

3.5 Summary

A search of the NZTA Crash Analysis System (CAS) has been undertaken to understand the road safety

history for moped riders for the most recent five year period from 2010 to 2014. A total of 1,593 reported

crashes were identified during this period. Key points from the crash statistics include:

A total of 6 fatal crashes, 258 serious injury crashes, 978 minor injury crashes and 351 non-injury

crashes were reported over the past five years;

The percentage of moped related crashes (17%), which resulted in death or serious injury, is similar to

the percentage of bicycle-related crashes (18%). The percentage of motorcycle related crashes (30%),

which resulted in death of serious injury, is approximately double compared to moped related crashes;

The peak period for moped crashes was between March and May;

A total of 1,326 crashes (83%) occurred during weekdays and the remaining 267 (17%) crashes

occurred during weekends. This reflects the greater use of mopeds for commuting;

A total of 52% of the reported crashes occurred in major centres such as Auckland, Wellington City or

Christchurch City

Nearly 94% of all moped crashes occurred on urban roads (speed limit of 70km/h or less). Is this an

enforcement issue?

Among the 1,593 reported moped crashes, a total of 1,258 crashes involved multiple vehicles and the

remaining 335 crashes were single moped crashes.

The top three common vehicle movements in a multi vehicle crash are right turn against, crossing

vehicle turning and crossing right turn. In a single moped crash, the three most common crash factors

involved rider lost control of the moped either on straight road, or turning left or turning right. Do we

know who is at fault?

The most common crash factors include poor observation and driver failing to give way.


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4. ACC Injury Claims

The latest 11 years of moped or scooter injury data from 2004 to 2014, provided by ACC, was used to

identify injury patterns for injuries resulting from moped crashes. The injury data potentially captures a

number of non-reported moped crashes although there is no link between ACC and NZTA data to check

the extent to which this is the case. There were 2,525 injury claims between 2010 and 2014 which is

approximately twice the number of reported fatal and injury crashes in CAS between 2010 and 2014. This

suggests that there is an approximately 50% of under reported moped crashes resulting in an injury.

Figure 4.1 shows the proportion of moped or scooter injury claims by injury contact and Figure 4.2 shows

the injuries across parts of the body for the past 11 years from 2004 to 2014.

The statistics in Figure 4.1 illustrate that contact with the ground or floor constitutes the highest proportion

(42%) of injuries followed by collision (30%). Figure 4.2 shows the most common injury type was the

lower extremity of the body (leg/ knee/ ankle/ foot) which accounted of 39% of injury claims. The second

highest injured part of the body is the upper extremity (hand/ wrist/ arm) with 25%. The head/face/neck

injury constitutes 14% of the overall injury claims - lower than the other parts of the body. The higher

proportion of lower extremity and upper extremity injury and lower injury head/face/neck injury could be

related to the existing rules and policies where it is mandatory for moped riders and pillion passengers to

wear an approved helmet but there is no requirement to wear protective clothing, footwear and gloves.

Leg/Knee/Ankle/Foot39%

Hand/Wrist/Arm25%

Head/Face/Neck14%

Shoulder/Spine/Abdomen/Chest

19%

Other3%

Figure 4.2 Claims

by injury for the

financial year

2004-14

Figure 4.1 Claims

by injury contact

(2004-2014)


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The analysis presented in Figure 4.3 shows the proportion of injury claims by injury cause. More than half

(55%) of the injury claims were due to the rider losing control of the vehicle or losing balance on the

vehicle.

4.1 Crash Attributes

A study of ACC costs for motorcycle and moped crashes for the period of 2004 to 2013 (Barclay Anstiss

2014) shows that the findings generally align with the 2010 to 2014 CAS data reported in Section 0. The

study showed 95% of moped costs were on urban roads which is consistent with the CAS data from 2010

to 2014, and also consistent in that more than half of the reported moped injury costs were associated with

crossing or turning movements. Poor observation, of the moped rider or another crash party, was

identified as the most common factor in the ACC moped injury claims and this was also one of the most

common crash factors from the CAS data for the period 2010 to 2014.

Collision/Knocked Over by Object

25%

Loss Balance/Personal

Control22%

Loss of Control of Vehicle

33%

Other20%

Figure 4.3 Claims

by injury cause for

financial year

2004-2014


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5. Stakeholder Consultation

The objectives of the stakeholder consultation are consistent with the purpose of the research in Section 8.

The parties consulted included statutory or regulatory stakeholders. Advice was also taken from

community groups that have an interest in moped and scooter safety. The key stakeholders include:

New Zealand Police

New Zealand Transport Agency (NZTA)

Motorcycle Safety Advisory Council (MSAC Council Member)

New Zealand Automobile Association (AA)

Canterbury Scooter Club (Canscoot)

New Zealand Classic Scooter Club

Scoot NZ (New Zealand’s scooter magazine)

Insurance Council of New Zealand (ICNZ).

All the stakeholders identified were contacted via email or telephone and the response rate from the above

list of stakeholders was 75% (6 of 8 responses).

The feedback received from the consultation was categorised into four key themes:

Licensing and training

Vehicle maintenance and inspection

Personal protective equipment

Other issues.

Concerns were raised by some stakeholders around the definition of mopeds and scooters and how this

may be applied in the research. For consistency with the research scope and other sections of this report,

all stakeholder feedback refers to mopeds assuming the NZTA definition specified in section 1.1 of this

report.

5.1 Licensing, Training and Education

Most stakeholders agree that there is a lack of training or (requisite) road experience for moped riders. In

particular, a car learner licence holder in New Zealand is permitted to ride a moped of no more than 50cc

at a maximum speed of 50km/h without training and is not required to have a supervisor when learning to

ride. The majority of responses noted that riding a moped requires a different set of handling skills

compared to handling a car and training should be mandatory for a car licence holder to ride a moped.

One stakeholder considered that car licence holders who wish to ride a moped should ideally also be

tested with a theory test similar to the road code for motorcyclists, but this could be less extensive.

Another stakeholder considered that a car learner licence holder, who is inexperienced, should not be

permitted to ride a moped without supervision and the requirement should, at a minimum, be raised to that

of a restricted licence holder. An alternative licence class for moped was also suggested that could be

introduced into the current licensing system.

Other suggestions made by stakeholders include:

Introducing a supervisor for inexperienced riders as this would encourage riders to advance their riding

skills and work towards a full licence to remove any restriction, or

Introducing a time limit between licence classes to encourage riders to increase their skills and

advance to the next level. If the licence holder failed to advance to a full licence within the time

specified, the licence would be revoked. This will require people who have not been riding for a while

to refresh their riding skills before they are allowed to ride on the road again.


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One stakeholder recommended the research team investigate the licensing requirements in France as an

exemplar. The research team found that the licensing system is similar to the UK. France also has a

specific licence class for moped (Category AM) and riders are required to have a Category A1 licence to

ride a motorcycle of more than 50cc and up to 125cc.

Some stakeholders identified that there is an optional moped training course (Scooter Survival course)

provided by the ACC, however it is the understanding of the research team that uptake rates are relatively

low.


The majority of stakeholders indicated that there are mopeds in poor condition operating on the road which

raises safety concerns. The majority stated a preference for Warrant of Fitness (WOF) certification for

mopeds because this will encourage riders to ensure their vehicles are safe to be used on the road. One

stakeholder stated that a moped would generally be used within the main stream of traffic and should be

certified to ensure the vehicle is roadworthy.

Most stakeholders indicated that the WOF inspection could be a basic inspection of the tyres, lights and

brakes and does not need to be as extensive as a motorcycle WOF inspection. This is to ensure that the

additional cost to riders is low and moped use remains accessible and affordable.

Another stakeholder noted that sub-standard mopeds were being imported into the New Zealand market a

number of years ago but this practice has recently stopped. The stakeholder understand that mopeds are

now inspected when first registered in New Zealand and this may have been successful in addressing this

issue.



(PPE) such as gloves, proper footwear and clothing compared to motorcycle riders. Existing rules do not

require moped riders to wear protection gear other than an approved helmet.

The majority of stakeholders agree that there is a lack of education or awareness in terms of the

importance of wearing the right gear when riding a moped. One stakeholder suggested that this could be

addressed by incorporating appropriate questions regarding PPE as part of the theory test in the licensing

system.

One stakeholder indicated that a moped is generally a low cost mode of transport and introducing further

mandatory protective equipment could potentially affect the accessibility of moped and scooter transport.

The stakeholder concluded that personal protective equipment requirements for moped riders should be

different or less extensive to that for motorcycle riders. The conspicuity of riders was raised as a safety

issue by one stakeholder and the introduction of mandatory hi-vis vests was suggested as a

countermeasure.

5.4 Other Issues

Power-assisted cycle

One stakeholder raised questions regarding power-assisted cycles which currently are not considered to

be a motor vehicle and can be used without registration or a drivers licence15

. NZTA states that power

assisted cycles have an auxiliary electric motor with a maximum power not exceeding 300W and are

15 https://gazette.govt.nz/notice/id/2013-au4618

https://gazette.govt.nz/notice/id/2013-au4618


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designed to be primarily propelled by the muscular energy of the rider16

. The stakeholder commented that

an electric bicycle or a power-assisted bicycle could be modified to have an auxiliary electric motor of just

under the 300W limit to avoid any licensing or registration requirements, and this could potentially be an

issue.

Lane Filtering or Splitting

Some stakeholders commented that there is a lack of regulations and awareness around the rules of lane

filtering or splitting for moped riders. In particular, whether moped riders are allowed to use cycle lanes

and/or advanced cycle boxes to bypass traffic. Lane filtering in Queensland Australia is only permitted if

the rider holds an open licence and is riding at a speed of 30km/h or less17

. Clarification around the use of

cycle lanes and advanced cycle boxes for moped riders in New Zealand was considered by stakeholders

to be desirable.

5.5 Summary

The research team consulted with key stakeholders including statutory or regulatory agencies and

community interest groups. The comments received from the consultation generally align with the findings

from the review of existing rules and policies. There are three key points from the stakeholder consultation

which include:

There is a lack of training or road experience for moped or scooter riders. In particular, car learner

licence holders in New Zealand are permitted to ride a moped without any requisite training;

Poorly maintained mopeds operating on roads are unsafe and the majority of stakeholders stated a

preference for mandatory Warrant of Fitness (WOF) certification for mopeds or motor scooters;


such as gloves, proper footwear and clothing compared to motorcycle riders. This could be associated

with the existing rules that do not require moped or scooter riders to wear protection gear other than an

approved helmet.

16 https://www.nzta.govt.nz/vehicles/vehicle-types/low-powered-vehicles/#power-assisted-cycles

17 http://www.qld.gov.au/transport/safety/rules/motorcycle/

https://www.nzta.govt.nz/vehicles/vehicle-types/low-powered-vehicles/#power-assisted-cycles

http://www.qld.gov.au/transport/safety/rules/motorcycle/


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6. Conclusions

6.1 Licensing, Training and Education

The lack of moped on-road training and education for car licence holders in New Zealand has been

identified as a gap in the literature review of rules and policies and through the stakeholder consultation.

Car licence holders riding mopeds without supervision or training is almost invariably recognised as a

safety issue. This is predominantly due to the different set of skills required to ride a moped compared to

driving a car in relation to braking, cornering and balancing skills. In particular, the safety issue is

exacerbated when coupled with inexperience riders.

The minimum age to apply for a learner licence in New Zealand is 16 years old which is generally

consistent with overseas’ minimum age requirements. However, there is no requirement for a car learner

licence holder to complete any moped handling or skills test prior to riding a moped on the road. A car

learner licence holder is only required to display an L-plate and does not need a supervisor when learning

to ride a moped.

Review of the NZTA CAS data for the period 2010 to 2014 shows that moped rider inexperience was

reported as one of the crash factors in 9% of the reported moped crashes. More than half (55%) of the

ACC injury claims between 2004 and 2014 were due to the rider losing control of the vehicle or losing

balance on the vehicle. These could, although not all, be attributed to the lack of on-road experience.

A mandatory safety training course could be introduced through the licensing system and made

compulsory for a driver’ licence holder who wants to ride a moped. Professional development modules for

scooter training providers could be developed to assist them to promote and discuss with riders

undertaking training programs, choice of suitable vehicles and appropriate protective gear.


Vehicle maintenance and inspection is another common aspect that was identified as a potential safety

concern through the stakeholder consultation. A mandatory Warrant of Fitness (WOF) certification for

mopeds could be introduced as a vehicle safety initiative. One stakeholder raised that it is crucial to

ensure that the additional cost is manageable and that moped use remains accessible and affordable.

The WOF certification could be a basic inspection of the vehicle such as ensuring the vehicle has working

lights, brakes and tyres in good condition.

The NZTA CAS data, between 2010 and 2014, shows that there was a fault or problem with the moped

(for example faulty brakes, bald tyres, mirrors etc.) in only 2% of all moped crashes (that is 32 reported

crashes over a five-year period) There is limited evidence that this is a significant contributor to crashes

and related injuries. Although the percentage of crashes associated with vehicle fault is relatively low, it

should be noted that there is a significant proportion of underreported crashes.

Implementing a mandatory basic WOF requirement is viewed as a proactive measure to ensure that

existing and future mopeds on the road are roadworthy. However, it is important to ensure the associated

additional cost to riders is low and moped or motor scooter use remains accessible and affordable


Mopeds are not legally defined as motorcycles in New Zealand18. Unlike motorcyclists, moped riders are

not required to have any protective equipment other than helmets. The stakeholder consultation also

18 https://www.nzta.govt.nz/resources/roadcode/motorcycle-road-code/you-and-your-motorcycle/about-motorcycles/

https://www.nzta.govt.nz/resources/roadcode/motorcycle-road-code/you-and-your-motorcycle/about-motorcycles/


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identified that moped riders often do not have adequate personal protective equipment such as gloves,

proper footwear and clothing compared to motorcycle riders.

The ACC injury claim data shown in Figure 4.2 shows that lower extremity and upper extremity injury

constitute the highest proportion of reported injuries. The introduction of mandatory protective clothing

such as boots, gloves, pants and jackets for moped riders would reduce injury severity; however, some

stakeholders raised concerns that this could impose additional costs and inconveniences making moped

use less attractive.

Lack of regulation and awareness could be contributing factors and could be addressed by incorporating

proper protective equipment questions in the compulsory theory test as part of the licensing requirement.

The CAS data, from 2010 to 2014, shows that moped-related crashes involved another vehicle pulling into

the path of the moped and the common crash factors includes drivers failing to notice the moped rider until

it was too late. These could be associated with conspicuity of moped riders. Conspicuity was also

mentioned in the stakeholder consultation as an important factor. Introducing hi-vis vests for moped riders

as a minimum requirement is likely to improve riders’ conspicuity.

6.4 Road Safety Rules

Towing

A search of the NZTA Crash Analysis System (CAS) to understand the road safety history for moped

riders for the most recent five-year period from 2010 to 2014 shows that there were no crashes involving a

moped towing a trailer. This suggests that mopeds may not be used very often to tow a trailer and the

impact of restrictions in this regard may not lead to a reduced incidence of model-related crashes

The current rules and policies in New Zealand allow a moped, no more than 50cc and 50km/h maximum

speed, to be used to tow a trailer without any other restrictions. There is no specific rule that prevents an

inexperienced rider, a learner or restricted licence holder, to tow a trailer using a moped which is

considered a potential safety issue.

Mopeds are not allowed to tow a trailer in the UK because of the limited engine size and only motorcycles

with an engine capacity of more than 125cc are allowed to tow a trailer. Queensland and South Australia

have specific moped towing requirements that depend on the vehicle specifications.

Pillion Passenger

There are no restrictions in relation to the minimum age of a pillion passenger in New Zealand. In

Australia, children under the age of 8 years old are not permitted to be pillion passengers.

The age of the rider and pillion passenger was not recorded in the NZTA Crash Analysis System (CAS).

However, it is not ideal for a child to be a pillion passenger as the consequences of a crash could be very

serious especially if coupled with a lack of safety equipment. Rules and policies could be introduced such

that riders are not permitted to carry a pillion passenger under the age of 8 years old as a safety initiative.


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7. Recommendations

A review of overseas’ rules and policies identified that there are potential gaps in New Zealand rules and

policies in relation the use of mopeds or motor scooters. The comments received from the stakeholder

consultation generally align with the findings from the review of existing rules and policies.

New rules and policies could be introduced into the regulations or licensing system to address the gaps

identified to improve moped safety in New Zealand. These potential rules and policies include introducing:

Measures to improve awareness as to the benefits of having appropriate riding gear through a

mandatory theory test and/or skills course which may be linked to the licensing process.

Mandatory on-road training in the licensing process for car licence holders who want to ride a moped or

scooter. This may include imposing restrictions or conditions on inexperienced licence holders to have

a qualified supervisor when riding.

A WOF certification to ensure the roadworthiness of the vehicle including lights, tyres and brake

function;

A minimum age requirement for a pillion passenger, and

A restriction for moped riders towing a trailer dependant on vehicle specifications and rider’ experience.

There is little evidence of crashes or crash-related injuries occurring where pillion passengers or trailers

are involved, therefore it is recommended that the first three measures be prioritised for further

consideration. Whilst there was similarly little evidence regarding poor condition of mopeds being a

contributing factor, concerns were raised during stakeholder consultation about the poor condition of some

mopeds on New Zealand roads. The crash and injury analysis noted that errors made by moped riders and

rider inexperience contributed to a significant number of crashes, and injuries to extremities which may

have been avoided or mitigated through personal protective equipment were also prevalent.

The research team recommends that ACC build upon the findings of this research by undertaking further

investigation into the potential effectiveness of crash and/or injury severity reduction realised by

implementing the first three measures as a high priority. The resulting analysis would provide the

foundation for a business case to prioritise and support the introduction of some of all of these measures.


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8. References

Barclay Anstiss (2014) Estimate of ACC costs for motorcycle and moped crashes by cause (2004-2013). Accident Compensation Corporation (ACC)

New Jersey Department of Transportation Motor Vehicle Services (2000) Moped Manual. New Jersey Department of Transportation.

NSW Government Transport Roads and Maritime Services (2013) Motorcycle riders’ handbook. NSW Government 88pp.

NZ Transport Agency (2014) Guide for the interpretation of coded crash reports from the crash analysis

system (CAS).

NZ Transport Agency (2011) Mopeds: road rules and equipment (Factsheet 43). NZ Transport Agency.

NZ Transport Agency (2013) Economic Evaluation Manual. NZ Transport Agency.

NZ Transport Agency (2015) The official New Zealand road code. NZ Transport Agency

OECD (Ed) (2015) Improving safety for motorcycle, scooter and moped riders, Paris: OECD. 207pp.

Ontario Ministry of Transportation (2013) The official MTO motorcycle handbook. Ontario Ministry of Transportation

Queensland Government (2015) Pillion passenger rules for motorcycles. Accessed 13 January 2016. https://www.qld.gov.au/transport/licensing/motorcycles/passengers/

Queensland Government Transport and Main Roads (2012) Queensland Motorcycle Riders’ Guide. Queensland Government Transport and Main Roads 48pp.

sécurité routière tous responsable (2015) 2 Wheelers license (permit A). Accessed 13 January 2016. http://www.securite-routiere.gouv.fr/permis-de-conduire/passer-son-permis/le-permis-2-roues-motorises-permis-a

Société de l’assurance automobile du Québec (2014) Classes of Driver’s Licence | Driver’s Licence | SAAQ. Accessed 13 January 2016. http://www.saaq.gouv.qc.ca/en/driver_licence/classes/class_6d.php

South Australia Department of Planning, Transport and Infrastructure (2015a) My Licence - My motorcycle licence. Accessed 13 January 2016. http://mylicence.sa.gov.au/my-motorcycle-licence

South Australia Department of Planning, Transport and Infrastructure (2015b) The Driver’s Handbook Road Rules.

State of Michigan Secretary of State (2015) Riding a Moped Safely. Accessed 13 January 2016. http://www.michigan.gov/sos/0,4670,7-127-1585_15242-236804--,00.html

State of New Jersey - Motor Vehicle Commission (2015) Motorized bicycle (moped) license. Accessed 13 January 2016. http://www.state.nj.us/mvc/Licenses/MotorizedBicycle.htm

UK Government (2015) Riding a motorcycle, moped or motor tricycle. Accessed 13 January 2016. https://www.gov.uk/ride-motorcycle-moped/bike-categories-ages-and-licence-requirements


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Virginia Department of Motor Vehicles (2015) Mopeds. Accessed 13 January 2016. https://www.dmv.virginia.gov/vehicles/#moped.asp

Washington State Department of Licensing (2015) Do I need a motorcycle endorsement? Accessed 13 January 2016. http://www.dol.wa.gov/driverslicense/needendorsement.htm

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