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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2018. Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit. Washington, DC: The National Academies Press. doi: 10.17226/25294.
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NCHRP Web-Only Document 253: Implications of Connected and Automated Driving Systems Vol. 2: State Legal and Regulatory Audit Tammy E. Trimble Virginia Tech Transportation Institute Blacksburg, VA Wendy Wagner Lisa Loftus-Otway The University of Texas at Austin Austin, TX Susanna Gallun Susanna Gallun Consulting Austin, TX Sam Morrissey Glenn Havinoviski Iteris Fairfax, VA Betty Serian Betty Serian Associates Camp Hill, PA Geoff Johnson Peloton Mountain View, CA Contractor’s Final Report for NCHRP Project 20-102(07) Submitted July 2018 ACKNOWLEDGMENT This work was sponsored by the American Association of State Highway and Transportation Officials (AASHTO), in cooperation with the Federal Highway Administration, and was conducted in the National Cooperative Highway Research Program (NCHRP), which is administered by the Transportation Research Board (TRB) of the National Academies of Sciences, Engineering, and Medicine. COPYRIGHT INFORMATION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA, FMCSA, FRA, FTA, Office of the Assistant Secretary for Research and Technology, PHMSA, or TDC endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. DISCLAIMER The opinions and conclusions expressed or implied in this report are those of the researchers who performed the research. They are not necessarily those of the Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; or the program sponsors. The information contained in this document was taken directly from the submission of the author(s). This material has not been edited by TRB.

The National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, non- governmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president. The National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. C. D. Mote, Jr., is president. The National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president. The three Academies work together as the National Academies of Sciences, Engineering, and Medicine to provide independent, objective analysis and advice to the nation and conduct other activities to solve complex problems and inform public policy decisions. The National Academies also encourage education and research, recognize outstanding contributions to knowledge, and increase public understanding in matters of science, engineering, and medicine. Learn more about the National Academies of Sciences, Engineering, and Medicine at www.national-academies.org. The Transportation Research Board is one of seven major programs of the National Academies of Sciences, Engineering, and Medicine. The mission of the Transportation Research Board is to increase the benefits that transportation contributes to society by providing leadership in transportation innovation and progress through research and information exchange, conducted within a setting that is objective, interdisciplinary, and multimodal. The Board’s varied committees, task forces, and panels annually engage about 7,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individuals interested in the development of transportation. Learn more about the Transportation Research Board at www.TRB.org.

C O O P E R A T I V E R E S E A R C H P R O G R A M S CRP STAFF FOR NCHRP WEB-ONLY DOCUMENT 253 Christopher J. Hedges, Director, Cooperative Research Programs Lori L. Sundstrom, Deputy Director, Cooperative Research Programs Gwen Chisholm Smith, Manager, Transit Cooperative Research Program Keyara Dorn, Program Coordinator Eileen P. Delaney, Director of Publications Natalie Barnes, Associate Director of Publications Jennifer Correro, Senior Editorial Assistant NCHRP PROJECT 20-102(07) PANEL AREA TWENTY: SPECIAL PROJECTS Robert G. Mikell, IDEMIA, Snellville, GA (Chair) Joseph Chapman, California DMV, Sacramento, CA Samer Dessouky, University of Texas–San Antonio, San Antonio, TX Yoassry M. Elzohairy, Ontario Ministry of Transportation, Downsview, ON Patty A. Morneault, Maine Bureau of Motor Vehicles, Augusta, ME David M. Neitz, CDM Smith, Boston, MA James S. Thiel, Thiel, Vu & Associates, LLC, Madison, WI Kirk Zeringue, Louisiana DOTD, Baton Rouge, LA Carl K. Andersen, FHWA Liaison Cathie Curtis, American Association of Motor Vehicle Administrators Liaison Bernardo Kleiner, TRB Liaison

NCHRP 20-102(07) Interim Report iv T A B L E O F C O N T E N T S Executive Summary ....................................................................................................................................viii ................................................................................................................................ 1 ................................................................................................................................. 6 2.1 Overview of Automated Technology and Its Implications for Transportation .................................... 6 2.1 Fit of the Task 3 Report with Earlier NCHRP Tasks .............................................................................. 8 ..................................................................................................................................... 10 3.1 The Research Question ...................................................................................................................... 10 3.2 General Methodological Choices ....................................................................................................... 11 Fifteen States ........................................................................................................................................ 11 DMV and DOT Focus ............................................................................................................................. 11 Assumption on Preemption .................................................................................................................. 12 Modification Rather than Amendment ................................................................................................ 12 3.3 Legislative and Regulatory Inventory Audit Method ......................................................................... 12 Step 1: Selection of States .................................................................................................................... 12 Step 2: Locating Provisions in Need of Modification............................................................................ 15 Step 3: Expert Ground-truthing and Peer Review ................................................................................ 16 ............................................................................................................... 17 4.1 Driver and Operator Requirements ................................................................................................... 18 Driver Licensing .................................................................................................................................... 26 Reciprocity Agreements and Interstate Harmonization....................................................................... 29 Driver Testing ....................................................................................................................................... 29 Sanctions .............................................................................................................................................. 32 4.2 Vehicles .............................................................................................................................................. 42 Vehicle Titling and Registration ............................................................................................................ 42 Vehicle Inspections and Vehicle Requirements ................................................................................... 46 Vehicle Maintenance ............................................................................................................................ 49 Aftermarket Modifications ................................................................................................................... 50 4.3 Motor Vehicle Liability ....................................................................................................................... 53 User and Owner Liability for Damages ................................................................................................. 53 Consumer Protection Laws ................................................................................................................... 54 4.4 Rules of the Road ............................................................................................................................... 56 Due Care Requirements ....................................................................................................................... 57 Rules of the Road That Involve Some Human Processing of Visual Cues............................................. 58 Parking and Standing Prohibitions ....................................................................................................... 63 Visibility as a Trigger for Requirements ................................................................................................ 63 Legality of Signs That Hinge on Their Visibility to Drivers .................................................................... 65 Local Restrictions .................................................................................................................................. 65 4.5 Occupant Safety ................................................................................................................................. 66 4.6 Crash Reporting ................................................................................................................................. 67 4.7 Platoons and Following Distance ....................................................................................................... 68 Following Distance ............................................................................................................................... 69 The Legal Classification of a Platoon .................................................................................................... 74 Weight, Length, and Noise Restrictions ............................................................................................... 75 Lane Restrictions .................................................................................................................................. 78 Service Requirements ........................................................................................................................... 78

NCHRP 20-102(07) Interim Report v Local Controls That Override State Restrictions ................................................................................... 79 4.8 DOT Traffic Control and Design Element Modifications .................................................................... 79 4.9 Cybersecurity/Data Recording and Sharing ....................................................................................... 79 Privacy and Cybersecurity .................................................................................................................... 79 Existing Protections for Private Data in State Motor Vehicle Codes .................................................... 80 New Sources of Private Information in Automated Transportation .................................................... 81 Existing State Laws and Privacy Risks ................................................................................................... 83 Cybersecurity ........................................................................................................................................ 87 ................................ 89 5.1 Overarching Recommendation .......................................................................................................... 92 5.2 Major Findings and Recommendations ............................................................................................. 94 Driver and Operator Requirements ...................................................................................................... 94 Driver Licensing .................................................................................................................................... 95 Reciprocity ............................................................................................................................................ 96 Driver Testing and Education ............................................................................................................... 96 Driver Sanctions .................................................................................................................................... 96 5.3 Unattended Vehicles ......................................................................................................................... 97 5.4 Vehicles .............................................................................................................................................. 99 Vehicle Titling and Registration ............................................................................................................ 99 Vehicle Inspections and Vehicle Requirements ................................................................................. 100 Vehicle Maintenance .......................................................................................................................... 101 Aftermarket Modification .................................................................................................................. 101 5.5 Motor Vehicle Liability ..................................................................................................................... 102 Operator and Owner Liability for Damages ....................................................................................... 102 Consumer Protection Laws ................................................................................................................. 102 5.6 Rules of the Road ............................................................................................................................. 103 Applicability to C/ADSs ....................................................................................................................... 103 Due Care, Human Judgment, and Visibility Requirements ................................................................ 103 Local Restrictions ................................................................................................................................ 104 5.7 Occupant Safety ............................................................................................................................... 104 5.8 Crash Reporting ............................................................................................................................... 105 5.9 Platoons and Following Distance ..................................................................................................... 105 Following Distance ............................................................................................................................. 106 Clarification of the Legal Classification of Truck Platoons .................................................................. 107 Consider Aggregate Length, Weight, and Noise Limits as Well as Lane Restrictions for Platoons .... 108 Local Authority Over Platooning ........................................................................................................ 108 5.10 Privacy Protections ........................................................................................................................ 109 .............................................................................................................................. 111 Appendix 1: State Statute Examples ....................................................................................................... 112 Appendix 2: Triggers Used to Identify Problematic State Provisions ..................................................... 181 Appendix 3: Acronyms, Definitions, and Assumptions ........................................................................... 183 Appendix 4: DOT Traffic Control and Design Element Modifications .................................................... 190

NCHRP 20-102(07) Interim Report vi L I S T O F T A B L E S Table 1. Summary of Task Activities ............................................................................................................. 8 Table 2. Broader View of Task 3 Adopted in this Study .............................................................................. 11 Table 3. States Included in the Legal and Regulatory Audit ....................................................................... 14 Table 4. Illustrative State Codes Representing Different Following Distance Approaches – Type 1 .......... 70 Table 5. Illustrative State Codes Representing Different Following Distance Approaches – Type 2 .......... 71 Table 6. Illustrative State Codes Representing Different Following Distance Approaches – Type 3 .......... 71 Table 7. Illustrative State Codes Representing Different Following Distance Approaches – Type 4 .......... 72 Table 8. Illustrative State Codes Representing Different Following Distance Approaches – Type 4 .......... 73 Table 9. Critical Category Checklist for Modification .................................................................................. 90 L I S T O F A P P E N D I X T A B L E S Table A1. Overview of Category 2 and 3 State Statutes with Regard to the Key Terms and Basic Requirements Regarding the Legal Operation of a Vehicle .................................................... 112 Table A2. Overview of Category 1 State Statutes with Regard to the Key Terms and Basic Requirements Regarding the Legal Operation of a Vehicle .................................................... 116 Table A3. Illustrative State Restrictions on Who Can Obtain a Driver’s License ...................................... 118 Table A4. Pennsylvania: Maneuvers Tested in Driving Test ..................................................................... 120 Table A5. Examples of “Fleeing” Requirements in State Codes ............................................................... 124 Table A6. Examples of “Intoxication” Prohibitions in State Codes ........................................................... 128 Table A7. Examples of “Drinker and Open Container” Prohibitions in State Codes ................................. 142 Table A8. Examples of “Visual Display” Prohibitions in State Codes ........................................................ 144 Table A9. Examples of “Handheld Device” Prohibitions in State Codes ................................................... 147 Table A10. Ohio Motor Vehicle Equipment Standards for Steering ......................................................... 152 Table A11. Examples of “Due Care” Requirements in State Codes .......................................................... 152 Table A12. Examples of Requirements in State Codes That Provide Some Authorities to Local Governments for Rules of the Road ........................................................................................ 153 Table A13. Examples of “Occupant Safety” Requirements in State Codes............................................... 160 Table A14. General Design Considerations ............................................................................................... 165 Table A15. Geometric Alignment ............................................................................................................ 166 Table A16. Geometric Cross Section ......................................................................................................... 167 Table A17. Intersection and Interchange Design ...................................................................................... 169 Table A18. Roadway Design Features ....................................................................................................... 170 Table A19. Road Signage and Traffic Control ............................................................................................ 172 Table A20. Examples of State Codes That Do Not Require Complete Confidentiality for Certain Types of Motor Vehicle Information ................................................................................... 173 Table A21. Triggers Used to Identify Problematic State Provisions – Core Questions ............................. 181 Table A22. Triggers Used to Identify Problematic State Provisions – Supplemental Triggers.................. 181

NCHRP 20-102(07) Interim Report vii L I S T O F F I G U R E S Figure 1. Contributing Factors to the Autonomous Vehicle Approach Action Plan (AVAAP). ...................... x Figure 2. Two Potential Competing Interpretations of the Word "Drive" or "Operate" ............................ 22 Figure 3. Process for Completing the Prioritization Assessment and Harmonization Analysis. ................. 89 Figure 4. Breakdown of States that Have Modified Terms Drive, Driver, Operator ................................... 94 Figure 5. Percent of States Prohibiting Driver Distractions ........................................................................ 99 Figure 6. Percent of States in Sample Imposing Legislative Restrictions .................................................. 100 Figure 7. Variation in State Following Distance Requirements ................................................................ 106 Figure 8. State Following Distance Mandate Variations ........................................................................... 107 L I S T O F A P P E N D I X F I G U R E S Figure A1. SAE J3016 Levels of Automation .............................................................................................. 184 Figure A2. Timeline for C/ADS deployment. ............................................................................................. 189 Figure A3. Snapshot of Michigan’s Five Year Transportation Plan Section on Automated and Connected Vehicles .......................................................................................................................... 195

NCHRP 20-102(07) Interim Report viii Executive Summary Connected and Automated Driving Systems (C/ADSs)—a term that in this report encompasses both vehicle connectivity and Automated Driving System features—present both opportunities and challenges for state agencies and lawmakers. Among the highest priority challenges is charting how C/ADSs, particularly SAE level 4–5 ADS-equipped vehicles,1 fit within the existing legal frameworks at the state level. Over the last 50 years, states have developed elaborate statutes, often consisting of hundreds of sections of state code, dedicated to regulating all facets of driving, vehicles, and underlying infrastructure. Most of these codes and regulations, however, were written without any anticipation of C/ADSs. When vehicles are driven by ADSs rather than humans (or a mix of both), existing state laws or regulations governing their safe operation may need to change in fundamental ways or at the very least may require numerous adjustments. While states are already responding to the challenges of automated technology, many find themselves operating reactively, responding to industry advances as they arise rather than proactively anticipating the technological changes. This study endeavors to provide assistance to state agencies as they work to adapt their legal programs to reflect the realities of C/ADSs. The research involves a front-to-back audit of 15 separate states codes and regulations (states were selected to represent a broad range of legal approaches), as well as the latest version of the Uniform Vehicle Code (UVC; 2000), since the UVC served as the legal starting point for a number of state codes. The goal of the audit is to identify the types of legal impediments embedded in existing codes that may need to be modified.2 The audit method developed in the report is also intended to offer states a useful template for conducting their own internal state audits. The study highlights dozens of state code provisions that may need modification or clarification to reduce ambiguity and uncertainty as they apply to C/ADSs. The 10 most critical recommendations are itemized below. 1. Definitions. Identification of fundamental terms that are in need of clarification or revision to provide predictability and consistency in the legal treatment of C/ADSs. These include “drive” and “driver,” “due care,” and “operator,” each of which occur hundreds and sometimes thousands of times in a single state legislative motor vehicle code and form the underpinnings of much of the code’s legal applicability and jurisdictional reach. 2. Legal Audit. A front-to-back audit of state codes that reveals not only where codes must be changed, but highlights where the absence of law is in and of itself an equally or even more significant problem. Codes are placed into a checklist for modification by automated vehicle level and timeframe. 1 Readers should refer to Figure A1 in the Appendix for information on SAE driving levels. 2 The vast majority of the raw audit data on the UVC and 15 states (i.e., key provisions with comments) is available on a dedicated web space. This information is available through a hyperlink and will be maintained for the foreseeable future (e.g., 5 years). See: https://utexas.box.com/s/341xa53e7yb8usyv0vjkjhtc45mtqfdr

NCHRP 20-102(07) Interim Report ix 3. Use of Data and Data Protection. A rigorous examination of the types of consumer data that could be collected by C/ADS-equipped vehicles (connected and Automated Driving System-equipped vehicles ) as well as by connected infrastructure located outside vehicles. States should also assess how third parties might use this collected data to compromise consumer privacy. This includes an assessment of whether some consumer data could be used by law enforcement or made publicly accessible through Open Records Statutes in ways that conflict with legitimate consumer privacy interests. 4. Truck Platooning. Adjustments to various existing legal requirements that affect truck platooning. To allow platoons on state highways, states should modify following distance requirements. The possibility of local restrictions that could conflict with state platooning programs should also be researched and addressed. Engineering analyses may also be useful to understand the effects of long platoons as they relate to current weight, length, and other restrictions. 5. Aftermarket. A mechanism to regulate aftermarket modification of vehicles that enhance or alter automated features. Vehicle registration programs more generally may also need to include new requirements, such as tracking the nature and type of automated features on a vehicle, but these new programs generally will not require modifications to existing requirements. 6. Operator Responsibility. Modification of criminal or civil laws that currently place full responsibility on operators and owners for violations and damages, even if the vehicle is operating appropriately in automated mode. 7. Human Judgment of Rules of the Road. Modification or clarification of rules of the road that require human judgment or visual cues, both for safe operation and for crash reporting requirements set by policy makers. 8. Vehicle Inspection Requirements. Modification of vehicle safety and inspection requirements to remove any unreasonable impediments to the use of C/ADSs. An assessment of additional inspection and vehicle requirements, such as requirements for software updates, may also be necessary to ensure safe automated vehicle deployment; however, these are wholly new programs and generally do not require modifications to existing requirements. 9. Occupant Safety. Modification of legislative and regulatory requirements governing occupant safety (child seat belts) and requirements governing unattended vehicles operating at Level 4 and above. 10. Driver Restrictions and Limitations. Re-examination of the licensing restrictions for certain types of driver limitations (e.g., seizure). States may want to revise their testing and education programs to ensure operator competence with automated features, although these changes will add to rather than modify existing legal requirements.

NCHRP 20-102(07) Interim Report x A longer list of 26 recommendations for potential modification (Table 9) is located at the beginning of Chapter 5. Detailed analysis and explanations in support of these recommendations are provided in the Chapter 4 analysis section. Policy makers in departments of motor vehicles (DMVs) and departments of transportation (DOTs) who may be tasked with conducting their own audit may find Chapter 4 particularly useful since it delves into the intricacies of the codes and regulations and explains the basis for the recommended modifications. Subsequent reports by this research team – specifically the Connected and Automated Driving Systems Legal and Regulatory Prioritization Assessment and Harmonization Analysis (Serian et al., 2018) – offer more comprehensive recommendations and prioritization schemes that build on the legal analysis of state codes offered here (Figure 1). Figure 1. Contributing Factors to the Autonomous Vehicle Approach Action Plan (AVAAP).

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TRB's National Cooperative Highway Research Program (NCHRP) Web-Only Document 253: Implications of Connected and Automated Driving Systems, Vol. 2: State Legal and Regulatory Audit assists state agencies as they work to adapt their legal programs to reflect the realities of Connected and Automated Driving Systems (C/ADSs)—a term that in this report encompasses both vehicle connectivity and an Automated Driving System. The study highlights dozens of state code provisions that may need modification or clarification to reduce ambiguity and uncertainty as they apply to C/ADSs.

View all volumes of NCHRP Web-Only Document 253:

  • Vol. 1: Legal Landscape
  • Vol. 2: State Legal and Regulatory Audit
  • Vol. 3: Legal Modification Prioritization and Harmonization Analysis
  • Vol. 4: Autonomous Vehicle Action Plan
  • Vol. 5: Developing the Autonomous Vehicle Action Plan
  • Vol. 6: Implementation Plan
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