require pedaling and are top speed limited to 25km/hr.

Those aren’t the ones that are at issue, it’s the (already illegal, no need for new legislation, just enforcement, but gov gotta be seen doing something (performative)) 40+km/hr thumb accelerator jobbies that are the risk, and yes they should be considered motorbikes (or mopeds depending) and are legally already (but usually don’t meet safety standards).

TLDR: Just enforce the laws in place.