I believe it's a necessity.
10 years ago, you saw very few of the small mopeds* As a scooterist (I ride a 600cc which is basically an automatic motorcycle. there was no confusion about having it licensed and insured) I often carped "
yeahhh, the gas prices have gone up and people are buying those 49cc-ers. once the gas prices go down, they'll go to the back of the garage." That's no longer true. The small bikes have become common modes of transportation. I see them on some of the busiest roads, here around Raleigh. They hug the side of the road, doing their top speed of 35-50, and are very much in danger.
It appears that there has been extensive research on this. If people are going to utilize motorized transportation, putting themselves at risk, they need to be on the books, same as the rest of us riders.
More moped, scooter rules considered at NC legislature
*Tangent: moped might be a misnomer that the legislature didn't understand. Mopeds have pedals. I rode one in college. What we see on the roads are the 49cc scooters.