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ISSUES AND OPTIONS FOR LOCAL AUTHORITIES Wellington House, 40-50 Wellington Street, Leeds LS1 2DE 0113 251 7204 infourbantransportgroup.org ISSUES AND OPTIONS FOR TRANSPORT AUTHORITIES ON CONNECTED AND AUTONOMOUS VEHICLES AUTOMATIC FOR THE PEOPLE? The Urban Transport Group represents the seven strategic transport bodies which between them serve more than twenty million people in Greater Manchester (Transport for Greater Manchester), Liverpool City Region (Merseytravel), London (Transport for London), Sheffield City Region (South Yorkshire Passenger Transport Executive), Tyne and Wear (Nexus), West Midlands (Transport for West Midlands) and West Yorkshire (West Yorkshire Combined Authority). The Urban Transport Group is also a wider professional network with associate members in Strathclyde, Bristol and the West of England, Tees Valley, Nottingham and Northern Ireland. Automatic for the people? Report authors: Rebecca Fuller, with thanks to Clare Linton and Jonathan Bray.March 2020 2 CONTENTS Contents 1 Introduction .4 2 Introducing Connected and Autonomous Vehicles .6 3 UK priorities and policy position on Connected and Autonomous Vehicles .12 4 Exploring the case for Connected and Autonomous Vehicles .18 5 Key issues for transport authorities on Connected and Autonomous Vehicles .26 6 Options for transport authorities on Connected and Autonomous Vehicles .35 7 Conclusions and recommendations .40 8 References . 44 3 INTRODUCTION Connected and autonomous vehicles (CAVs) can be considered a Marmite issue. People tend to either instinctively love or hate the idea of fully autonomous vehicles with little middle ground. Reports on the subject are often equally polarised, taking either an evangelical or a doom-laden tone as they imagine the utopia or dystopia they will eventually unleash. Some imagination is required in either case given that nobody can say for certain exactly how CAVs will evolve, at what pace and with what consequences. Envisaging a future with CAVs involves making a number of assumptions about how people will respond to them; at what level of autonomy and connectivity they will predominantly operate and in what circumstances; what the applications might be for different modes of transport; and how soon (if ever) they will come to dominate the transport mix. These assumptions have implications for transport policy, networks and infrastructure but also for a wide range of other policy areas, from public health to urban planning. This helps to explain why CAVs have also been described as a wicked problem1. A wicked problem is one that is difficult (or impossible) to solve because of incomplete, contradictory and changing requirements. It involves many stakeholders with differing views, a large potential economic impact, no determinable stopping point and complex interdependencies. Wicked problems are not bad but are extremely challenging for policy makers. The CAV industry also increasingly recognises the challenges that mass deployment of the technology presents, requiring government approval, public trust, brand marketing, the ability to manufacture at scale and the technical knowhow to manage a fleet. 2 Whilst this report cannot give definitive answers as to what the future trajectory for the development of CAVs will be, it does aim to provide an objective framework for city regions to think about CAVs, their implications for wider priorities and the approaches they might therefore take. In doing so, this report seeks to do three things that set it apart from the many other reports there are on CAVs. Firstly, it specifically looks at CAVs from the perspective of city region transport authorities in the context of their wider objectives and responsibilities, rather than considering CAVs in isolation from wider public policy considerations. Secondly, it does not solely focus on the implications of an as yet hypothetical end state where the vast majority of vehicles are fully autonomous. Instead, it recognises that vehicles are increasingly connected and have begun to operate with features which have a degree of autonomy. We have therefore already embarked on a CAVs trajectory. 4Automatic for the people? 5Introduction 1 Regardless of whether this trajectory ends in a future where all vehicles are fully autonomous, there are implications in the here and now for transport authorities. This report takes the view that CAVs are, and will continue to be, a moving target with live implications at every twist and turn rather than a single leap to a pre-determined end state on which all thinking and policy making should focus on accommodating. Thirdly, whilst many other reports on CAVs focus exclusively on how cars might become fully autonomous, this report looks at a wider range of vehicles including buses and public service vehicles. It also looks at the implications of CAV technologies for the roads these vehicles will be travelling on. The report begins by providing clarification on what we mean by CAVs before assessing what stage the technology is at and where it sits in terms of UK government policy and priorities. The report then analyses the four key areas often highlighted as representing the main potential contribution of CAVs (safety, economic, social and environmental benefits) before examining six challenges of particular relevance to transport authorities. Consideration is then given to the options open to transport authorities in terms of how they might approach the emergence of CAVs. It features a number of international examples highlighting a range of approaches from laissez faire to acting as a guiding hand. Finally the report suggests what transport authorities can do now to respond effectively to the development of CAVs and what actions national government should take to enable them to do so. 6Automatic for the people? Level 0 No Automation Level 1 Driver Assistance Level 2 Partial Automation Level 3 Conditional Automation Level 4 High Automation Level 5 Full Automation This is identical to Level 4 except that the driving automation features are not limited by an operational design domain. Instead they are capable of performing all driving functions in all situations that a human driver could. Hands on Hands on Hands on Eyes on Eyes on Eyes on Eyes offHands off Hands offEyes off Eyes off (temporary)Hands off (temporary) INTRODUCING CONNECTED AND AUTONOMOUS VEHICLES Defining Connected and Autonomous Vehicles are automated in some way that is, they can perform some or all functions without driver input. Vehicles can have varying degrees of connectivity and automation. In respect of automation, the most widely used model is that developed by SAE which describes six levels of vehicle automation3: For the purposes of this report, we define connected and autonomous vehicles as: those which use an external network connection to communicate in some way either to the driver, other vehicles, roadside infrastructure or the cloud, or to any combination (or all) of these and 7Introducing Connected and Autonomous Vehicles The human driver performs all aspects of all driving tasks, even when these are enhanced by warning or intervention systems. The driver assistance features can carry out either the steering or acceleration/deceleration. The driver assistance features can carry out both steering and acceleration/deceleration. The driving automation features can perform all driving tasks but a human fallback-ready user is expected to respond appropriately to a request to intervene. The fallback-ready user must be receptive to a handover request or to an evident system failure, but is not expected to monitor the driving environment. The driving automation features can perform all the driving tasks within their operational design domain (for example, motorways only). There is no expectation that the human user will respond to a request to intervene. If the limits of the system are exceeded, the system will put the vehicle into a minimal risk condition, such as a safe stop. This is identical to Level 4 except that the driving automation features are not limited by an operational design domain. Instead they are capable of performing all driving functions in all situations that a human driver could. 2 8Automatic for the people? Connected and autonomous technology has potential applications for a wide range of vehicle types from cars to buses and from road sweepers to HGVs. What stage is CAV technology at? Connectivity features have been built into road vehicles for some time. This could be a connection to a phone, Bluetooth, GPS, sat nav or the internet, via an internal SIM, allowing the vehicle to remain online at all times4. It is estimated that there are over three million vehicles in the UK with internet connectivity5. Most are single vehicles connected to an information cloud. Current connectivity features include smartphone integration, roadside assistance, parking apps, remote diagnostics and voice commands6. The next level of connected vehicles are still in their infancy but would eventually be able to communicate with one another, with road infrastructure and even across national borders7 with the goal of improving safety and efficiency. Developments in AI and machine learning could see connected vehicles learning from their collective experiences. Some autonomous features are common in the vehicles of today, including automatic starters, gearboxes and wipers; emergency braking; cruise control; lane assist; and park assist. It is interesting to note that, outside of the road environment, automation/driverless operation is relatively common on metro networks around the world. UITP reports8 that globally 25 cities run automated metro lines, with the first dating from 1981. The trains require no driver in the front cabin or staff assigned to a specific train. Vehicles with more autonomous features are, however, beginning to appear on our streets as part of real-world trials of the technology. The recently completed DRIVEN project, for example, tested automated vehicles on the streets of Oxford on a daily basis9 as well as demonstrating autonomous fleet driving in Londons complex urban environment10. Meanwhile, robot food11 and package12 delivery pods are successfully navigating the streets of Milton Keynes (albeit monitored by human operators who can step in if required). Whilst there are many more trials and demonstrations planned and underway, we are still a long way away from regularly seeing Level 3-Level 5 autonomous vehicles on our streets. Developers of self-driving cars, for example, have suffered setbacks as they attempt to refine the technology, some with tragic consequences for car occupants and other road users alike. Furthermore, trials and demonstrations are an entirely different prospect to large-scale deployment. James Farley, Fords President of New Businesses, Technology and Strategy has commented that the development of self-driving systems is necessary, but not enough to build a business on. He talks about the continuing uncertainty around the manufacturability of the sensing systems, the regulatory environment and the scaling of the customer facing business.13 Mindful of the complexities posed by urban environments, CAV developers are increasingly embracing operational design domains14 and geo-fencing. This involves focusing on more predictable, constrained tasks and environments that the vehicles can handle now, or soon (for example, running on segregated portions of the highway, on set routes between two points or in defined spaces like airports or university campuses). 9Introducing Connected and Autonomous Vehicles CAV testing on campus Salford Transport for Greater Manchester is working in partnership with the University of Salford to test a 15-seater Level 4 autonomous vehicle in a real-world environment around the private roads of the University campus. Current vehicle registration requirements (such as the need for the driver to have a clear view and for a steering wheel) mean it cannot yet be used on public roads. Eventually, the project plans to link the vehicles in to the wider public transport network, connecting people to rail, bus and tram hubs as well as to the Universitys second campus at Media City. Even in the constrained environment of the University campus, a number of practical challenges have emerged. The team has discovered that the vehicles Lidar system (which acts as eyes) cannot function in horizontal rain or in snow, both of which cause the vehicle to stop. Low hanging branches also stop the vehicle as it is unable to determine what the obstruction is made of and how likely it is to cause damage. A bird landing on a rooftop antennae also impeded the vehicles progress. These small examples highlight the huge challenges CAVs will face when operating in a complex streetscape. The Level 4 autonomous vehicle on campus. Credit: Rebecca Fuller The Government Office for Science predicts that Automation could plausibly challenge the transport system status quo from the 2030s onwards, for trains and buses but also, potentially for private car-based transport15. Buses, trams and trains are thought of as natural candidates for early automation given they typically follow predictable routes and can use infrastructure (like bus lanes) designed to minimise encounters with conventional traffic. 10Automatic for the people? Europes first full-sized autonomous bus fleet Fife/Edinburgh Europes first full-sized autonomous passenger bus fleet trial is set to launch this year, serving up to 10,000 passengers per week between Fife and Edinburgh across the Forth Road Bridge, plus on-road and hard shoulder running16. Since 2018 the bridge has been designated as a Public Transport Corridor, with access to motor vehicles (other than buses and taxis) restricted17. Ferrytoll Park and Ride in Fife and Edinburgh Park train and tram interchange sit at either end of the route18, offering connections through to the wider transport network. Each bus will be able to carry up to 42 people and, whilst it will operate at Level 4 automation, a driver will remain on board in line with regulations. Autonomous systems developed for the trial are anticipated to provide spin-offs th

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Review of Guidelines for trials of automated vehicles in Australia: Discussion paper May 2020 1 Discussion paper Review of Guidelines for trials of automated vehicles in Australia May 2020 Review of Guidelines for trials of automated vehicles in Australia: Discussion paper May 2020 2 Report outline Title Review of Guidelines for trials of automated vehicles in Australia Type of report Discussion paper Purpose For public consultation Abstract This discussion paper reviews the National Transport Commission (NTC) and Austroads Guidelines for trials of automated vehicles in Australia. The guidelines were released in 2017 to support nationally consistent conditions for automated vehicle trials in Australia. The NTC has undertaken research and targeted consultation to present potential updates to the guidelines that aim to benefit trialling organisations and road transport agencies. Updates could include: further detail about requirements; alignment with the future commercial deployment framework; clarifying the application of the guidelines to other technologies; and improving administrative processes. The NTC is seeking views on these proposals and any other relevant matters. Submission details The NTC will accept submissions until Friday 3 July 2020 online at www.ntc.gov.au. Attribution This work should be attributed as follows, Source: National Transport Commission 2020, Review of Guidelines for trials of automated vehicles in Australia: Discussion paper, NTC, Melbourne. If you have adapted, modified or transformed this work in anyway, please use the following, Source: based on National Transport Commission 2020, Review of Guidelines for trials of automated vehicles in Australia: Discussion paper, NTC, Melbourne. Key words automated vehicles, trials, emerging technology, safety management, traffic management, data, insurance, evaluation, importation Contact National Transport Commission Ph: (03) 9236 5000 Email: enquiriesntc.gov.au www.ntc.gov.au Review of Guidelines for trials of automated vehicles in Australia: Discussion paper May 2020 3 Have your say What to submit We are seeking views on the consultation questions in this discussion paper, as well as any other views you have on the trial guidelines or automated vehicle trials that may be relevant. We would like to hear in particular from Commonwealth and state and territory road transport and enforcement agencies, trialling organisations and those interested in running automated vehicle trials in Australia, local councils, road managers, insurance bodies, road user groups and groups representing the disabled, vulnerable and ageing communities. When to submit We are seeking submissions on this discussion paper by Friday 3 July 2020. How to submit Any individual or organisation can make a submission to the NTC. Making a written submission Visit www.ntc.gov.au and select Submissions in the top navigation menu. Submitting by other methods Register you interest for an online meeting or tell us how you would like to be involved by emailing automatedvehiclesntc.gov.au. Where possible, you should provide evidence, such as data and documents, to support the views in your submission. Publishing your written submission Unless you clearly ask us not to, we publish all the written submissions we receive online. We will not publish submissions that contain defamatory or offensive content. The Freedom of Information Act 1982 (Cwlth) applies to the NTC. Review of Guidelines for trials of automated vehicles in Australia: Discussion paper May 2020 4 Contents Report outline . 2 Have your say. 3 Executive summary . 7 1 About this project . 10 1.1 Project objectives 10 1.2 Background 11 1.3 Our approach to reviewing the guidelines 12 1.4 Related work and interdependencies 12 1.4.1 Austroads future vehicles trials lessons learned repository 12 1.4.2 Safety assurance for commercial deployment of automated vehicles 13 1.4.3 Motor accident injury insurance and automated vehicles 13 1.4.4 Government access to vehicle generated data 13 1.4.5 Austroads infrastructure 13 2 Context of the review . 14 2.1 Overview 14 2.2 Australian context for automated vehicle trials 14 2.2.1 Current state of trials in Australia 14 2.2.2 Findings from targeted consultation about trial guidelines 15 2.2.3 Agreement to safety criteria for the first supply of automated vehicles for commercial deployment 15 2.3 International context for automated vehicle trials 15 2.3.1 Types of trials 16 2.3.2 Regulatory developments 16 3 Content and level of detail in the current guidelines . 19 3.1 Overview 19 3.2 Management of trials 19 3.2.1 Traffic management plan 20 3.2.2 Trial location 20 3.2.3 Engagement with the public and other stakeholders enforcement agencies 21 3.2.4 Purpose of the trial 21 3.3 Safety management plan 22 3.3.1 Standard of evidence required 22 3.3.2 Monitoring human drivers or operators 23 3.3.3 Risks to other road users 23 3.3.4 Interaction with enforcement and emergency services 24 3.3.5 Recognition of pre-trial tests 25 3.3.6 Additional criteria for the safety management plan 25 3.4 Insurance 26 3.5 Data and information 27 3.5.1 Incident reporting 27 3.5.2 Broader data recording requirements 29 3.5.3 Reporting on trial outcomes 31 Review of Guidelines for trials of automated vehicles in Australia: Discussion paper May 2020 5 3.6 Additional information for trialling organisations in the guidelines 32 4 Application of the guidelines . 34 4.1 Overview 34 4.2 Operating domains 35 4.3 Technology applications 36 4.3.1 Small automated vehicles 36 4.3.2 Autonomous pods 36 4.3.3 SAE level 1 and level 2 vehicles with advanced driver assistance technologies 37 4.4 Heavy vehicles 37 4.5 Large trials 38 4.6 Commercial passenger services 38 5 Administrative processes and harmonisation . 40 5.1 Overview 40 5.2 Administrative processes for trial applications 40 5.2.1 Application and approval processes 40 5.2.2 Engagement with relevant decision-makers 41 5.3 Cross-border trials and harmonisation of processes 41 6 Other automated vehicle trial issues outside the scope of the guidelines . 44 6.1 Overview 44 6.2 Government evaluation frameworks and shared learnings 44 6.3 Importation process for automated vehicle trials 45 6.3.1 Limits of import options 45 6.3.2 Import application process 46 6.3.3 Taxes 46 6.4 Transition to commercial deployment 46 7 Conclusion and next steps . 48 7.1 Conclusion 48 7.2 Next steps 48 Appendix A Safety criteria and obligations for the first supply of automated vehicles for commercial deployment . 49 A1.1 Safety criteria 49 A1.1.1 Safe system design and validation process 49 A1.1.2 Operational design domain 49 A1.1.3 Human-machine interface 50 A1.1.4 Compliance with relevant road traffic laws 50 A1.1.5 Interaction with enforcement and other emergency services 50 A1.1.6 Minimal risk condition 51 A1.1.7 On-road behavioural competency 51 A1.1.8 Installation of system upgrades 51 A1.1.9 Verifying for the Australian road environment 52 A1.1.10 Cybersecurity 52 A1.1.11 Education and training 52 A1.2 Obligations 53 A1.2.1 Data recording and sharing 53 A1.2.2 Corporate presence in Australia 53 Review of Guidelines for trials of automated vehicles in Australia: Discussion paper May 2020 6 A1.2.3 Minimum financial requirements 53 Glossary . 54 References . 56 Review of Guidelines for trials of automated vehicles in Australia: Discussion paper May 2020 7 Executive summary The National Transport Commission and Austroads Guidelines for trials of automated vehicles in Australia were released in May 2017 to support nationally consistent conditions for automated vehicle trials in Australia. The guidelines were intended to: provide certainty and clarity to industry regarding expectations when trialling in Australia help agencies manage trials in their own jurisdictions as well as across state borders establish minimum standards of safety help assure the public that roads are being used safely help raise awareness and acceptance of automated vehicles in the community. Transport and infrastructure ministers directed that the guidelines should be reviewed every two years. We began this review of the guidelines in 2019 and it is the first to take place since they were published. The purpose of this discussion paper is to assess how well the guidelines are working in practice and to seek broader stakeholder views on any required changes. Context Since the guidelines were published in May 2017 there have been a number of developments in trialling and the development of regulatory frameworks for automated vehicles: Trials have now taken place in every Australian state and territory, and trialling organisations and road transport agencies can share their experience of the application, approval and operation of trials. There has been further development of the regulatory framework for the commercial deployment of automated vehicles, which will eventually succeed the trials framework. International guidance has further evolved. The objectives of the review are to identify: whether the guidelines have assisted governments and trialling organisations challenges faced by governments and trialling organisations using the guidelines or in applying for, approving, operating and evaluating trials additional requirements governments have placed on trialling organisations whether the guidelines should be updated to ensure a nationally consistent and safe approach to automated vehicle trials in Australia. Consultation topics In late 2019 the NTC undertook targeted consultation and a review of international guidance to inform this discussion paper. Through this consultation we have learned that trialling organisations and road transport agencies have found the guidelines useful, particularly as a starting point to guide trialling organisations as they prepare their trial applications. We have also learned that the guidelines could provide further detail to assist trialling organisations Review of Guidelines for trials of automated vehicles in Australia: Discussion paper May 2020 8 and to provide some consistency in applications for road transport agencies. As well, we have learned that there are a number of differences in trial requirements and application processes across states and territories, which has led to differing experiences in gaining approvals for trials. Consultation topics in this discussion paper fall under five broad categories: content and level of detail in the current guidelines (chapter 3) application of the guidelines (chapter 4) administrative processes and harmonisation (chapter 5) other automated vehicle trial issues outside the scope of the guidelines (chapter 6). There could be a number of updates to the guidelines that will benefit both trialling organisations and road transport agencies. These include further detail about safety, traffic management and data and information requirements; further alignment with future safety requirements for commercial deployment; clarifying the application of the guidelines to other technologies, operating domains and types of trials; and improving the efficiency of administrative processes at the point of application. We are seeking views from stakeholders on the potential updates discussed in this paper and on any other useful changes. We want to ensure the guidelines support safe and innovative trials in Australia. This will help Australia gain the safety and productivity benefits of this technology. Next steps We are seeking written submissions and feedback through other methods by Friday 3 July 2020. During the consultation period we will also undertake broader consultation with stakeholders through meetings. Following this we will develop a policy paper and updated guidelines for the approval of transport and infrastructure ministers in November 2020. List of questions Question 1: Should the guidelines be updated to improve the management of trials (section 3 of the guidelines) and, if so, why? Consider in particular:.22 Question 2: Should the guidelines be updated to improve the safety management of trials (section 4 of the guidelines) and, if so, why? Consider in particular:.26 Question 3: What issues have been encountered when obtaining or providing insurance?.27 Question 4: Are the current insurance requirements sufficient (section 5 of the guidelines)? If not, how should they change?.27 Question 5: Should the guidelines be updated to improve the provision of relevant data and information (section 6 of the guidelines)? 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