There are no hard rules on this that I'm aware of—common sense rules the day. I think you just need to come up with a reasonable method and be prepared to explain it.

If it were a renovation or expansion, or if there is a similar existing project in the neighborhood, it seems like some kind of survey or head-counting could be done at minimal cost.

Do you have concerns about getting an number that's too high, and so having to provide a ton of bike racks, or something like that?