Who is the intended audience of the Plan? If we're talking "general public", then I'd suggest worrying more about avoiding confusion than fostering precision.
'Bicyclist' may technically exclude our other-than-two-wheeled brethren, but very few people will not understand what it is intended to mean. 'Cyclist', as far as I know, doesn't have any lycra-connotations to the wider world. 'Biker' has obvious potential for misunderstanding. Other terms, apropos as they may be, are less apt for communication purposes if they're not immediately recognizable.
O' course, I'm one of them nutty velocipedistas, so what do I know?