Main Index
CHAPTER 5
Light Motorcycles
Main Index |
CHAPTER 5 |
Light motorcycles [1] have been a popular form of transport for all
age groups, particularly teenagers, throughout Europe. In countries
such as the United Kingdom, France, Holland and Germany mopeds
are considered to be 'pedalled' motorcycles where the motor was
an adjunct to a set of pedals. In other countries, mopeds do
not need pedals and any small engine capacity motorcycles could
be considered as mopeds. In Sweden, for instance, a 15-year-old
can ride a moped without a licence, registration or helmet. In
some countries they can carry a pillion passenger. However, all
European countries, except Greece, ban them from travelling on
freeways. [2]
In contrast, light motorcycles or mopeds are rare in Victoria.
There are only about 700 registered motorcycles with engine capacities
less than 60cc. [3] The number of new registrations of motorcycles
with engine capacities less than 50cc declined from 298 in 1982
to 69 in 1990. [4]
Mopeds or light motorcycles have been the subject of three major
investigations in Victoria in the last 20 years.
In 1979, the previous Road Safety Committee of the Parliament
of Victoria, recommended that a 'moped only' licence category
should be introduced with reduced registration and insurance premiums
for these vehicles. It also recommended compulsory crash helmets
for moped riders; that mopeds be prohibited on freeways and bicycle
paths; and that moped riders be prohibited from carrying pillion
passengers. [5] However, no legislation followed.
In 1986, the Royal Automobile Club of Victoria concluded that
there was no reason why mopeds should be discouraged. Their use
offered an alternative mode of transport for road users and was
consistent with the current policy on graduated licensing and
pre-licence training. The study said that mopeds should be subject
to registration and insurance at special rates to be determined.
Further:
Further, the study suggested that 12 months and then 24 months
after the introduction of a special moped only licence, its effects
should be evaluated to review the number of accidents and to decide
whether to maintain this licence category.
These recommendations regarding mopeds were not implemented.
In Victoria mopeds are still classified as motorcycles for licensing
and registration arrangements.
In the course of the Inquiry, the Committee heard evidence that
mopeds are cheaper to run and have considerable safety and environmental
advantages over larger motorcycles at least in the context of
urban commuter travel. [7] Several submissions suggested that the
Government should encourage the use of light motorcycles. The
Victorian Automobile Chamber of Commerce mentioned the following
reasons:
Despite these assertions, moped and motorcycle use has been addressed
only cursorily in the Traffic in Melbourne Study which
suggests strategies to reduce the adverse environmental impacts
of vehicles and the amount of fuel used.[9] The proposal in the
study to include motorcycles in trials of the high occupancy vehicle
lanes on the Eastern Freeway is an exception. [10] In this major
study, VicRoads appears to have ignored the possibility that increased
moped use might contribute significantly to ameliorating Melbourne's
traffic and environmental problems.
There is some concern about moped use off-road, on farms and as
recreational vehicles at the beach. These issues have not been
addressed by the Inquiry because of difficulties in obtaining
reliable information and the distinction between on-road and off-road
travel made in the Victorian legislation. [11]
This Chapter addresses the Inquiry's term of reference
6. It makes recommendations on the definition of a light motorcycle
and on registration, training and licensing requirements.
5.2 DEFINITION OF LIGHT MOTORCYCLE
Controls on design and use of light motorcycles vary between Federal
and state legislatures in Australia depending on how they differentiate
between motorcycles, light motorcycles or mopeds and power-assisted
pedal cycles.[12]
In Victoria, the Road Safety Act 1986 and Regulations make no distinction between mopeds, light motorcycles and other motorcycles. Under current regulations, all vehicles must comply with relevant Australian Design Rules in order to comply with State roadworthiness requirements. [13]
The Australian Design Rules distinguish between power-assisted
pedal cycles, mopeds and motorcycles. They do not distinguish
between light motorcycles and mopeds.
Power-assisted pedal cycles are defined as pedal cycles
operated solely by human power to which is attached one or more
auxiliary propulsion motors with a combined maximum power output
not exceeding 200 watts [14] or the equivalent engine capacity of
about 23cc. These power-assisted pedal cycles are not subject
to further Federal regulations with respect to their lighting,
braking or noise emission.
Motorcycles are two wheeled vehicles with an engine capacity
greater than 50cc or a maximum speed greater than 50 km/h. [15]
Mopeds are two or three-wheeled motor vehicles, not being
a power-assisted pedal cycle, with an engine capacity not exceeding
50cc and a maximum speed not exceeding 50 km/h. [16]
Under the Australian Design Rules, mopeds are subject to the same
Australian Design Rules as motorcycles with respect to braking. [17]
They are not subject to Australian Design Rule 19/01 which requires
motorcycles to carry hard-wired daytime running lights, or 39/00
which governs noise emissions. Rather, they are required to comply
with special Australian Design Rules which control specifications
for moped headlamps [18] and noise. [19]
State legislation and regulations extend these basic criteria
for mopeds in different ways.
The Queensland Traffic Regulations extend the distinction between
mopeds and motorcycles to include the requirement for mopeds to
have an automatic gear box, an unladen mass of less than 65 kg
and a full capacity of lubricating oil, coolant and fuel. [20] Further,
in Queensland, mopeds must comply with Australian Design Rule
39 which applies to motorcycle noise emission. [21]
The Western Australian Road Traffic Act 1974 increases the maximum
speed of a moped to 60 km/h. [22]
The South Australian legislation does not define mopeds. However,
motorcycles with characteristics defined under the Australian
Design Rules as mopeds are treated differently from other motorcycles
in their licensing requirements if they also have a mass less
than 65 kg. [23]
In Tasmania, there is no distinction in the legislation and regulations
between motorcycles and mopeds.
In New South Wales a power assisted pedal cycle, defined using
the Australian Design Rules criteria, is exempt from registration
and licensing requirements. [24] A moped is a motorcycle with
engine volumetric capacity less than 50cc, maximum speed less
than 60 km/h and capability of being propelled as a pedal cycle. [25]
These mopeds and motorcycles with similar engine capacities
but without pedals must be registered and be fitted with a plate
indicating compliance with Australian Design Rules for mopeds
including moped light specifications. [26]
The Inquiry received several submissions which suggested that,
for the purposes of registration and licensing, the definition
of moped should differ from that in the Australian Design Rules.
The Victorian Automobile Chamber of Commerce defined light motorcycles
as:
The Federal Chamber of Automotive Industries believes mopeds should
be defined as:
In contrast, VicRoads proposed narrowing the distinction between
mopeds and motorcycles. They suggested that mopeds were motorcycles
with an engine capacity of approximately 90cc, unladen weight
of approximately 86.5 kg, and a maximum speed of about 75 km/h.[29]
They say mopeds should be distinguished from light motorcycles
which should have engine capacities between 90cc and 250cc and
should weigh between 86.5 and 160 kg. There should be subcategories
within the light motorcycle classification depending on whether
their engine capacities are greater or smaller than 125cc.[30]
The Committee is of the view that Victorian legislation which attempts to overrule Australian Design Rule definitions by distinguishing mopeds, light motorcycles and motorcycles into three separate categories should only proceed if the Australian Design Rule categories can be shown to have safety or other major practical disadvantages.
The Inquiry heard conflicting evidence from witnesses about the
benefits and disadvantages of light motorcycles or mopeds as commuting
and recreational vehicles.
Overseas studies suggest that fatality and casualty rates for
mopeds are far less than for motorcycles. However, these comparisons
fail to take account of exposure rates, type of moped, licensing,
training or differences in road networks in different countries.[31]
Further, Mr R. Christie, Manager, Road User Behaviour, VicRoads,
said in evidence:
Without appearing to be flippant, one would need a larger cemetery in Melbourne for those killed on mopeds but I will not descend into flippancy...If you were to rank vehicles in terms of the risk of being killed or injured, the top of the list would be motorcycles; secondly, you have mopeds; thirdly, bicycles; and the fourth is passenger cars. [32]
In contrast, Mr D. Kingsbury, in a submission to the Inquiry,
said that:
In Europe and Britain 16-year-olds are allowed to ride moped motorcycles after passing required tests. They are ideal for commuting purposes, miserly with fuel consumption and occupy little space. Perhaps greater consideration should be given to creating a new licence category such as in Europe for the use of mopeds.[33]
Mr Kingsbury is supported by data from VicRoads and the Transport
Accident Commission.
In Victoria in 1989, there were nine mopeds involved in accidents,
and three of those riders were seriously injured. [34] Motorcycles
with engine capacities less than 60cc were less likely than other
motorcycles to be involved in reported casualty collisions. [35]
Further, the severity of injuries sustained in moped crashes is
less than for victims of motorcycle collisions. [36] The average
cost to the Transport Accident Commission of reported collisions
involving mopeds was less than 10% of those for larger motorcycles
(Table 4). [37]
| |||
Engine Capacity |
|
| |
| less than 61cc | 766 | 0.22 | 0.04 |
| 61 to 125cc | 3,621 | 0.64 | 0.53 |
| 126 to 500cc | 36,610 | 1.62 | 2.57 |
| greater than 500cc | 26,557 | 1.81 | 3.80 |
The Committee is of the view that these differences between mopeds
and other vehicles are influenced by the shorter distances travelled
and slower speeds involved in moped use and their greater stability.
Mopeds travel about 75% the annual distance travelled by other
motorcycles. [38] The speeds of 50 or 60 km/h which are able to be
achieved by mopeds are about the same as those legally allowed
for motorcycles in the metropolitan area. The operation of mopeds
requires less skill than the manipulation of a 3, 5 or 10-speed
bicycle and they have greater stability. [39]
However, these factors alone are unlikely to be the only reasons
for the greater safety record for mopeds which is reported by
the Transport Accident Commission and VicRoads. Other contributory
factors may include the characteristics of moped users and the
reasons why they use mopeds.
The Committee is of the view that a firm distinction should be
drawn between so-called mopeds and other motorcycles for the purposes
of their registration and licensing. This distinction should
be imposed to encourage use of mopeds for urban travel and provide
incentives which favour choice of mopeds over motorcycles for
commuting and local travel. Consequently, the Committee endorses
the Transport Accident Commission's decision to lower registration
fees for motorcycles with engine volumetric capacities less than
60cc.
Further, in line with VicRoads and Transport Accident Commission
data and for the sake of consistency, this distinction should
continue to follow the Australian Design Rule definition of moped
which includes an engine capacity of less than 50cc and a maximum
speed of less than 50 km/h. Although there may be some
advantage in separating motorcycles with engine capacities between
61cc and 125cc from those with larger engine capacities, this
distinction is less marked in road safety terms and so should
remain within the ambit of motorcycle safety issues.
Licensing of moped users varies between countries and from state
to state in Australia. In some cases, moped users are subject
to the same age and skill requirements as motorcycle riders.
In others, moped riders only need to have a current motor car
driver's licence. Other states treat mopeds riders as
a special category of road users.
In Victoria, New South Wales [40] and Tasmania, [41] moped riders must
meet the same age and skill requirements as motorcycle riders
whereas riders of power assisted bicycles are exempt from these
licensing requirements.
This means that, in Victoria moped riders must be 18 years old
(17 years and nine months for a learner's permit) and have
passed a written examination and motorcycle riding test.
South Australia and Queensland have distinguished between motorcycles
and mopeds in their licensing requirements.
In South Australia, holders of full driver's licences may
ride motorcycles which comply with the specifications described
above without holding a motorcycle licence. [42]
In Queensland a person wishing to ride a moped which complies
with their registration requirements must hold a full car driver's
licence. [43] A person holding a learner's permit to ride a moped
must ride under the direction of a person who has held a driver's
licence for 12 months. [44] It has been recommended, however, that
operators of a moped be required to hold a current 'B' class (motorcycle)
licence or be separately tested and licensed for a moped. [45]
Western Australia has a special moped driving licence available
to 16-year-olds. Seventeen-year-olds can get car licences which
automatically entitle them to ride mopeds. [46]
The Inquiry received conflicting evidence about the way moped
licences in Victoria should be changed.
The Royal Automobile Club of Victoria study claimed that a trade-off
in accident risk would probably occur with the introduction of
lower age and road experience requirements. The current high
risk for people under the age of 18 might be offset by earlier
road experience. However, there might still be some overall increase
in the number of road accidents because of the increase in motorisation. [47]
They were supported by VicRoads who recommended that licensing
and testing of moped riders be the same as for motorcycle riders. [48]
In contrast, the Victorian Automobile Chamber of Commerce recommended
that holders of motor car licences should be allowed to ride light
motorcycles.[49]
The Federal Chamber of Automotive Industries took this recommendation
further. They said that all licensed car drivers be allowed to
rider mopeds and that a special moped licence be available to
16 year olds, on completion of a written and practical test. [50]
Mr P. Rollason, in an individual submission to the Inquiry, said
use of light motorcycles by young road users should be encouraged
because:
Unfortunately in Australia the average young rider has been 'brain-washed' by the motorcycle trade and journalists that 'small bikes are only for wimps'. The small bikes are usually much 'handier' in suburban traffic. [51]
Mr Rollason called for the following changes in the legal requirements
for smaller types of light motorcycle:
Mr R. Deighton-Smith, in another individual submission, also argued
that light motorcycles should be encouraged, noting:
In most parts of Europe ... they are treated as bicycles ... registration is not required, adolescents are able to ride them, and licensing is not required. [52]
He agreed that adopting a 'laissez-faire' attitude would provide
major benefits in terms of government energy conservation policies.
The Camperdown and Districts Motorcycle Club believed light motorcycles
were useful and cheap to run. However, the Club said some formof basic training and testing of riders was required noting that:
If a person already holds a car licence then the person upon purchasing the motorcycle should receive some skills training on the handling, cornering, counter steering to avoid our Victorian pot holes and wayward Tin -Tops (cars) is essential. The more people who ride these 'light motorcycles' the more people who will now be motorcycle aware, the better for us, because to ride one of these bikes from Dandenong to Broadmeadows through the C.B.D. of Melbourne in peak hour traffic would soon educate everybody as to the risks that cars present to the biker. It would also make more people aware of how vulnerable we are, that if a car driver makes mistakes, or makes up their own road rules or is not concentrating on what they are doing, then we are history. [53]
The Australian Motorcycle Trail Riders Association considered
that there was a definite place for lightweight, economical, motorised
transport for young people.[54]
The Committee is of the view that current licensing requirements
for moped riders in Victoria could discourage their use. People
who ride mopeds do not necessarily wish to graduate to motorcycles
later on and therefore do not want a motorcycle licence. Overseas,
mopeds are often sold through bicycle shops rather than motorcycle
dealers.
Mopeds are an economical, environmentally sound means of travel.
They are no more dangerous to ride than multi-geared bicycles.
There is no evidence that they fit into the same road safety
category as other motorcycles. Moped use could provide inexperienced
riders and drivers with a low-powered, relatively safe means of
developing the skills required to handle motorised transport in
the urban traffic situation. Therefore, rules which govern the
licensing of mopeds users need to lie between those which already
exist for motorcycles and those which apply to bicycles.
The Committee believes that moped riders should not be subject to the training and licensing requirements imposed on other motorcycle riders. Rather, individuals who have passed the written road law test required to obtain a car driver's learner's permit in Victoria should be able to ride a moped. In view of the low acceleration rates of these vehicles, these riders should not be able to ride on roads where bicycles are banned.
The Committee recommends that: