This is EXACTLY the problem.

I was speaking with city planners for a project they were working on (proposed road widening) , and every time I brought up the need for cycling infrastructure in certain areas, they would say something like “not enough cyclists use that route”, and I’d always follow up by saying “because that route is too dangerous or inconvenient without cycling infrastructure.”

The addage “if you build it, they will come” applies completely to cycling infrastructure.