The problem is partially the infrastructure. My rust belt city, or Eau Claire WI, could put in perfect bike and pedestrian infrastructure tomorrow, and it would be barely used for a generation, or more. Many bike advocates advance the wrong approach. Sure, with the right gear, anybody could commute in the middle of a Wisconsin winter. A better approach would be convinced the residents of Eau Claire (or any town, USA) to start by riding their bikes when the weather is good. Then gradually shift expectations to riding when it is raining. Then riding when it is cold. Lather, rinse, repeat. I think it would be a huge improvement if 2/3 of the residents of my city walked, took the bus, or rode their bikes to work five months out of the year. Over time, some percentage of those folks would realize that they could ride (or walk) when the weather isn't great.