The Billings city council is currently reviewing their street policy which will include future accommodations for more bicycles. New laws need to be put in place then for those who share the roads. If you are operating anything with wheels on a public street or roadway, you should be required to have it licensed and insured. Motorcycles and bicycles can cause accidents just like vehicles and should  have liability insurance so some innocent person isn't stuck with the bill. Nobody rides for free anymore.