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Why would people have a hard time doing 25mph on a pedal assist bike that isn't limited to less than that?
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They're talking about riding a regular bike at 25mph. Most people can't sustain that.
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Why does it matter how much riding it takes?

The point in distinguishing the different classes is about where the bike should fit into the ecosystem. Should it ride on the shoulder, interacting with pedestrians and slower bikes, or should it ride on the road, interacting with cars and motorcycles.

It doesn’t matter how much riding it takes, it matters how fast and controlled it is moving compared to the other traffic in that class.

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The answer is cyclist gatekeeping? Or did I misunderstand your point?
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