Correct. It's all a combination of factors, and if you would want things to change, there are no silver bullets; (this is the same for most things in life, though). You have to create a culture of cycling, infrastructure, laws, etc etc. The Dutch Government at some point decided to put a lot of money in cycling infrastructure, making sure that it would be difficult to reach the city centers by car, and made sure that in case of an accident, a cyclist has a very strong position compared to a car driver. The very fast E-bikes currently on the road are a new phenomenon, and the Government struggles to come up with new regulations for these bikes.