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1、Issues in Autonomous Vehicle Testing and DeploymentContentsIntroduction 1Advances in Vehicle Technology2Cybersecurity and Data Privacy 4Pathways to Autonomous Vehicle Deployment Abroad 6Issues in Federal Safety Regulation8Obama Administration Policy Direction 8Trump Administration Guidelines and Pro
2、posed Safety Rules9The Biden Administration 12National Transportation Safety Board Investigation and Recommendations 13Connected Vehicles and Spectrum Allocation 13Congressional Action16State Concerns 20Implications for Highway Infrastructure22FiguresFigure 1. Autonomous Vehicle Technologies3Potenti
3、al Entry Points for Vehicle Hacking 5Figure 2. Vehicle Communications Systems15State Actions on Autonomous Vehicles 21Figure A-l. Nuro Robot, R2X 25TablesTable 1. Levels of Vehicle Automation2Autonomous Vehicles Readiness Index7Table 2. Autonomous Vehicle Readiness Index for Major Auto Producing Cou
4、ntries8Types of Autonomous Vehicle Laws Enacted by the States22AppendixesAppendix. Image of Nuro Robot, R2X25ContactsAuthor Information25Congressional Research Serviceexpected manufacturers, suppliers, and service providers (such as ridesharing companies) to follow in testing autonomous vehicles, in
5、cluding data recording, privacy, crashworthiness, and object and event detection and response. These reports, called Safety Assessment Letters, would be voluntary, but the report noted that they may be made mandatory through a future rulemaking. Ibid., p. 15.expected manufacturers, suppliers, and se
6、rvice providers (such as ridesharing companies) to follow in testing autonomous vehicles, including data recording, privacy, crashworthiness, and object and event detection and response. These reports, called Safety Assessment Letters, would be voluntary, but the report noted that they may be made m
7、andatory through a future rulemaking. Ibid., p. 15. A model state policy that identifies where new autonomous vehicle-related issues fit in the current federal and state regulatory structures. The model state policy, developed by NHTSA in concert with the American Association of Motor Vehicle Admini
8、strators and private-sector organizations, suggests state roles and procedures, Ibid., p. 37. including administrative issues (designating a lead state agency for autonomous vehicle testing), an application process for manufacturers that want to test vehicles on state roads, coordination with local
9、law enforcement agencies, changes to vehicle registration and titling, and regulation of motor vehicle liability and insurance. A streamlined review process to issue DOT regulatory interpretations on autonomous vehicle questions within 60 days and on regulatory exemptions within six months. Ibid., p
10、p. 48-67. Current law permits NHTSA to exempt up to 2,500 vehicles per manufacturer from federal motor vehicle safety standards. Expansion to 25,000 or more vehicles would allow more testing of autonomous vehicles on roads; such an expansion would require a statutory change. Ibid., pp. 75-76. Ibid.,
11、 p. 70. Identification of new tools and regulatory structures for NHTSA that could build its expertise in new vehicle technologies, expand its ability to regulate autonomous vehicle safety, and increase speed of its rulemakings. Two new tools could be expansion of existing exemption authority?) and
12、premarket testing to assure that autonomous vehicles will be safe. Some of the new regulatory options cited would require new statutory authority, while others could be instituted administratively. The report noted that “DOT does not intend to advocate or oppose any of the tools. It intends .to soli
13、cit input and analysis regarding those potential options from interested parties/926Trump Administration Guidelines and Proposed Safety RulesThe four reports issued by the Trump Administration described a more limited federal regulatory role in overseeing autonomous passenger vehicle deployment, whi
14、le also broadening the scope of DOT oversight by addressing the impact of autonomous technology on multimodal transportation, including commercial trucks, public transit, rail, and ports and ships. DOT and NHTSA, Automated Driving Systems 2.0: A Vision for Safety, DOT HS 812 442, September 2017, at
15、; DOT and NHTSA, Preparing for the Future of Transportation: Automated Vehicles 3.0, October 2018, at av/3/preparing-future-transportation-automated-vehicles-3; National Science & Technology Council and DOT, Ensuring American Leadership in Automated Vehicle Technologies: Automated Vehicles 4.0, Janu
16、ary 2020, at. and Automated Vehicles Comprehensive Plan, January 11,2021, at . The following policies are described in these reports: Encouraged integration of automation across all transportation modes, not just passenger vehicles. Transportation agencies mentioned in the 2018 report and their regu
17、latory areas are: National Highway Traffic Safety Administration (passenger vehicles and light trucks); Federal Transit Administration (local transit buses, subways, light and commuter rail, and ferries); Federal Motor Carrier Safety Administration (large trucks and commercial buses);Federal Aviatio
18、n Administration (aviation); Federal Railroad Administration (railroads); Federal Highway Administration (highways, bridges, and tunnels). The October 2018 report Automated Vehicles 3.0 outlined how each of DOTS agencies, which generally oversee a single mode of transportation, would address autonom
19、ous vehicle safety within its purview. Established six automation principles that have been applied to DOTS role in overseeing passenger cars, trucks, commercial buses, and other types of vehicles. These include giving priority to safety; remaining technology -neutral; modernizing regulations; encou
20、raging a consistent federal and state regulatory environment; providing guidance, research, and best practices to government and industry partners; and protecting consumers5 ability to choose conventional as well as autonomous vehicles. Preparing for the Future of Transportation: Automated Vehicles
21、3.0, pp. iv-v. Reiterated the traditional roles of federal and state governments in regulating motor vehicles and motorists, respectively. The reports cited best practices that states should consider implementing, such as minimum requirements for autonomous vehicle test drivers, and discussed how DO
22、T provides states with technical assistance. Ibid., pp. 19-20. Preparing for the Future of Transportation: Automated Vehicles 3.0, p. viii. Recommended voluntary action in lieu of regulation. The reports suggested that manufacturers and developers of autonomous driving systems issue and make public
23、voluntary safety self-assessments to demonstrate transparency and increase understanding of the new technologies and that industry groups develop voluntary technical standards to advance the integration of automation technologies into the transportation system.” The NHTSA Voluntary Safety Self-Asses
24、sment web page lists 27 companies that have filed self-assessment reports with the federal government, including five major automakers. NHTSA VSSA web page, viewed April 5, 2021, . BMW, Ford, General Motors, Mercedes-Benz, and Toyota are the five major automakers that have filed VSSA reports; the ot
25、hers are autonomous vehicle developers such as Apple, Waymo, and Uber. To provide a perspective, 63 companies have been issued autonomous vehicle testing permits by the State of California alone/ State of California, Department of Motor Vehicles, Permit Holders (Testing with a Driver, Driverless Tes
26、ting, and Deployment), viewed April 5, 2021, at . Accelerated NHTSA decisions on requests for exemptions from federal safety standards for autonomous vehicle testing. Preparing for the Future of Transportation: Automated Vehicles 3.0, p. 8. Promoted development of voluntary technical standards by ot
27、her organizations, such as the Society of Automotive Engineers, the governments National Institute of Standards and Technology, and the International Organization for Standardization. Ibid., Appendix C, pp. 49-63.DOT has indicated that it wants to revise regulations pertinent to autonomous vehicles,
28、 such as redefining the terms “driver” and “operator” to indicate that a human being does not always have to be in control of a motor vehicle. It also said it plans to require changes in standards for the inspection, repair, and maintenance of federally regulated commercial trucks and buses. Prepari
29、ng for the Future of Transportation: Automated Vehicles 3.0, pp. 40-41. Along these lines, NHTSA has initiated several rulemakings, including an Advance Notice of Proposed Rulemaking in May 2019 requesting comments on testing and verifying how autonomous vehicle technologies should comply with exist
30、ing federal crash avoidance standards, NHTSA, Removing Regulatory Barriers for Vehicles with Automated Driving Systems,84 Federal Register 24433, May 29, 2019; status of the rulemaking found at 202010&RIN=2127-AM00.as well as an Advance Notice of Proposed Rulemaking published in December 2020一with p
31、ublic comments due by February 1, 2021-that sought public comment on a framework for automated driving system safety. NHTSA, Framework for Automated Driving,85 Federal Register 78058-78075, December 3, 2020. The latter proposal seeks to identify four objective principles of automated driving systems
32、 and vehicle competence that would inform safety regulators about how an autonomous vehiclereceives information about its environment through sensors, detects other road users and conditions,analyzes each situation on a road and plans the route of the vehicle, and executes that plan.If NHTSA follows
33、 the path envisioned in the proposed December 2020 rulemaking, it could mark a shift in its focus away from amending existing vehicle safety rules to developing a unique safety framework for autonomous vehicles. U.S. Department of Transportation, 4U.S. Department of Transportation Seeks Public Comme
34、nt on Automated Driving System Safety Principles,9, press release, November 19, 2020, at ; status of the rulemaking found at public/do/eAgendaViewRule?pubId=202010&RIN=2127-AM15. Department of Transportation, Automated Vehicles Comprehensive Plan, January 11, 2021, at ., introductory letter from the
35、n-DOT Secretary Chao, p. i.The Trump Administration issued its fourth report on autonomous vehicles on January 11, 2021, describing DOTS multimodal strategy to promote collaboration and transparency, modernize the regulatory environment, and prepare the transportation system for the safe integration
36、 of automated vehicles.,，4() This report fulfilled a Government Accountability Office (GAO) recommendation U.S. Government Accountability Office, Automated Vehicles: Comprehensive Plan Could Help DOT Address Challenges, GAO-18-132, November 2017, at . Consolidated Appropriations Act of 2018, Joint E
37、xplanatory Statement, Congressional Record, vol. 164, No. 50- Book III (March 22, 2018), p. H2875. The legislation, H.R. 1625, was enacted on March 23, 2018 (P.L. 115-141). and a 2018 congressional requirement that DOT develop a comprehensive plan to better manage departmental initiatives related to
38、 automated vehicles . and to specify within this plan goals, priorities, steps to achieve results, milestones, and performance measures to track progress.,，42 It also summarizes regulatory steps regarding autonomous vehicles that NHTSA took during the Trump Administration.The Biden AdministrationThe
39、 Biden Administration has not laid out its approach to autonomous vehicles as of the date of this report. Transportation Secretary Pete Buttigieg stated at a March congressional hearing U.S. Congress, House Committee on Transportation and Infrastructure, The Administrations Priorities for Transporta
40、tion Infrastructure, 117th Cong., 1st sess., March 25, 2021, at , at hearings/watch?hearingid=BA512082-A946-A5EB-BC22-B04FC2B36F77. David Shepardson and Audrey LaForest, Bidens transport chief not endorsing gasoline vehicle ban after 2035 J Automotive News, March 25, 2021, at . that a priority would
41、 be to establish safety and establish certainty for industry. He also observed that U.S policy had fallen behind technological developments and that he looks to Congress to assist DOT in establishing a framework for regulations that do not now account for fully autonomous vehicles. At the hearing, h
42、e said, “we intend to pay a lot of attention to that and do everything we can within our authorities.,，44Federal Safety Standards Exemption ProcessNHTSA has a legislative mandate 49 U.S.C. 301. to issue Federal Motor Vehicle Safety Standards (FMVSS) and regulations. Manufacturers of motor vehicles a
43、nd motor vehicle equipment must comply with these standards to protect against unreasonable risk of crashes occurring as a result of the design, construction, or performance of motor vehicles. The FMVSS regulations cover a wide range of vehicle components, including windshield wipers, brakes, lighti
44、ng, tires, mirrors, seating, seat belts, airbags, and child restraint systems.Under current law, NHTSA can exempt up to 2,500 vehicles per manufacturer per year from existing FMVSS. In the past, this exemption authority has been used when a manufacturer has had a unique vehicle, such as an armor-pla
45、ted security vehicle that has thick windshields not in compliance with federal windshield standards. NHTSA can exempt the automaker from a specific standard after a public comment period.With the advent of autonomous vehicle systems with no human driver, some vehicles may not need components once th
46、ought essential to driving, such as steering wheels or brake pedals. The exemption process has been cited as way to encourage innovation and facilitate field-testing by waiving some of these standards. An application for temporary autonomous driving-related exemptions filed by Nuro Inc., a Californi
47、a robotics company, was approved in 2020 by NHTSA. Nuros exemption from federal safety standardsthe first granted by NHTSA for autonomous vehicle testingwill allow it to operate low-speed, electric-powered autonomous delivery robots that will carry only cargo; it will not have seating or a passenger
48、 cabin or manual controls. Nuro received exemptions for as many as 5,000 vehicles over a two-year testing period, eliminating federal requirements for rearview mirrors, windshields, and backup cameras. Walmart and Dominos Pizza have reportedly announced that they would employ Nuro vehicles for custo
49、mer deliveries. Nuros electric-powered R2X robot will be tested initially in Houston, TX. It is smaller, narrower, and lower than a conventional automobile: 3.6 feet wide, 6.1 feet high and 8.9 feet long. It will travel no more than 25 miles per hour; its battery will reportedly enable the vehicle to operate all day without recharging. Its two curbside doors open upward; customers will enter a code tex