design as communication

If design is essentially communication, who is the audience for bicycle-related social design?

non-cyclists -

ads and promotional materials to encourage bicycling

bicycle and accessory design to make bicycling more accessible

facilities design also makes bicycling appear more accessible

education as an introduction to cycling

cyclists -

education to enhance comfort, safety, and correct bad behavior

bicycling and accessory design to increase comfort, efficiency, etc.

transportation planners and policy makers -

promotional materials to encourage new policies

education about cyclists needs

this group has control over facilities design

motorists -

ads and promo materials to increase awareness of cyclists (and cyclists' right to the road)

education to correct bad behavior

facilities design that encourages positive interaction with cyclists

As I think about designing projects, I need to keep in mind, who is my target audience?