Sadly, that is a common problem. Many towns don't have good bike infrastructure. If people don't feel safe biking, they won't do it. But the main thing that makes biking safer is ... more bikers!

Conversely, if the infrastructure is badly designed, it repels both bikers and drivers. Towns here have put bike lanes on streets that really don't have room for them, making a cramped and nerve-wracking experience for everyone. So we tend to avoid those streets, which is the opposite of helpful.