This only began to become a problem with the introduction of e-bikes. Old people especially are not wearing them on e-bikes. On regular bikes where you are going 15km/h you should not have to wear a helmet. The infrastructure in the Netherlands protects cyclists enough (in general) and a fall at that speed is not really that dangerous (in general, again).
Though an e-bike goes 25km/h. This is a lot more dangerous and people should definitely wear a helmet when driving one.
Though an e-bike goes 25km/h. This is a lot more dangerous and people should definitely wear a helmet when driving one.