because the netherlands already have a very good biking infrastructure for decades. i have been biking there in the 80s and 90s. neighboring germany was no comparison. obviously if you already have good infrastructure, further improvements won't be very noticeable or motivate many more people to bike.
but in cities that previously didn't have good infrastructure, the massive improvements really did attract new riders that would not have considered riding a bike before.
but in cities that previously didn't have good infrastructure, the massive improvements really did attract new riders that would not have considered riding a bike before.