Shared Automated Vehicle Toolkit: Policies and Planning Considerations for Implementation (2022)

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17   There are fundamental capabilities that must be in place to prepare stakeholders for MOD and vehicle automation. This chapter describes the stakeholders that may impact, and be impacted by, MOD and vehicle automation and how they can alter their roles to address these innovations. Tools for Stakeholders and Organizational Readiness Tools included in this chapter: • An inventory of stakeholders involved in MOD and AV deployment. • A discussion of current and potential public­sector roles and responsibilities. • A list of potential funding sources and budgetary changes that can be used to support new services. A variety of stakeholders are required to enable the growth and mainstreaming of MOD and AVs. Key stakeholders include: • Federal Government: Many branches of the government can influence MOD and AV deployments including the U.S. DOT, Department of Energy, Department of Labor, Department of Commerce, and Depart­ ment of Defense, among others. These organizations, albeit from different angles, can play a role in establishing transportation strategies, policies, and legislation. They can also imple­ ment those strategies, make investments in pilot programs and research, and provide guid­ ance for nationwide development of strategies. – U.S. Access Board promotes equality for people with disabilities through accessible design and helps develop accessibility guidelines and standards for the built environment, com­ munication, information technology, medical diagnostic equipment, and transportation. – U.S. Department of Transportation (U.S. DOT) works to keep the traveling public safe and secure, increase mobility, and have the U.S. transportation system contribute to the nation’s economic growth and development. It provides funding for the capital replacement and maintenance of the national highway system and public transit equipment and facilities, railroad safety, and passenger ferries. In addition, the U.S. DOT maintains national stan­ dards for transportation system safety and oversees funding recipients and transportation providers for safety and compliance with requirements for federal funding recipients. ƒ Federal Highway Administration (FHWA) offers financial and technical assistance to state, regional, and local governments to support the design, construction, and mainte­ nance of the national highway system. The goal of the FHWA is to ensure the national highway system is safe and technologically sound. C H A P T E R 1 Stakeholders and Organizational Readiness

18 Shared Automated Vehicle Toolkit: Policies and Planning Considerations for Implementation ƒ Federal Transit Administration (FTA) provides financial assistance for the develop­ ment of new transit systems and improvements, maintenance, and operations of existing systems. The FTA also monitors grants and federally funded projects to ensure recipients adhere to mandated procedures. ƒ Intelligent Transportation Systems – Joint Program Office (ITS JPO): The goal of ITS JPO is to create an intelligent transportation system through the integration of intelligent vehicles and intelligent infrastructure. ITS JPO provides investments in major research initiatives, exploratory studies, and deployment support programs. ƒ National Highway Traffic Safety Administration (NHTSA) helps keep people safe on America’s roads by enforcing vehicle performance and safety standards and engaging in partnerships with state and local governments. • State, Regional, and Local Authorities: These agencies implement policy and regulations, such as issuing permits, managing public rights­of­way, and managing local and regional transportation planning and traffic management centers. These stakeholders also serve as mobility integrators who work to integrate various travel modes physically and digitally. – State Departments of Transportation (DOTs) provide funding to plan, design, operate, and maintain roads and transportation systems. These agencies are responsible for enforcing safety standards in transportation systems. – Metropolitan Planning Organizations (MPOs) undertake regional planning activities for urbanized areas with populations of over 50,000 people. MPOs are responsible for establish­ ing regional priorities for federal transportation funding by implementing a continuous, comprehensive, collaborative planning process among the state DOTs and local govern­ ments within the MPO, public transit providers, locally elected officials, the public, and other stakeholder groups. – Rural Transportation Planning Organizations (RTPOs) are multijurisdictional organiza­ tions of rural local officials and transportation system operators that states may assemble to assist in the statewide and non­metropolitan transportation planning process. RTPOs emphasize rural areas of the state. An RTPO may have additional representatives from the state, private businesses, transportation service providers, economic development practi­ tioners, and the public. – Local Agencies make decisions at the local level about land­use planning and zoning; these can inform transportation plans and services (e.g., developing transit corridors). – Public Transportation Agencies operate and maintain public transit services in urban, suburban, and rural areas including fixed­route transit, demand­responsive transportation, and paratransit services to the general public. Some of the services these agencies operate include buses, trolleys, subways, light­rail, commuter rail, ferries, and paratransit. – Transportation/Traffic Managers oversee the transportation management centers that monitor operations, allocate resources as necessary, and respond to the needs of the network. • Apps and Mobile Service Providers include third­party information and communications technologies services and those who enable on­demand service, mobile ticketing, payment, and navigation services. • Insurance Providers include agencies, underwriters, and adjusters that assist businesses and individuals with purchasing insurance and filing claims. • Real Estate Developers include entities and investors that buy land, finance real estate deals, build or have builders build projects, create, imagine, control, and orchestrate the process of development or redevelopment. • Service Providers include bikesharing, car rentals, carsharing, microtransit, paratransit, scooter sharing, taxis, TNCs, and other service providers and managers. • Supply Chain Managers include logistics management and food, medical, and goods delivery providers who oversee and run the flow of goods and materials from origin to

Stakeholders and Organizational Readiness 19   destination in addition to handling inventory, warehousing, packaging, security, and dis­ patching functions. • Academic and Research Institutions conduct research on emerging modes and help eval­ uate strategies and equity, offer insight for policy levers and planning decisions, and identify best practices and lessons learned. • Consumers use the transportation modes and create demand for mobility, delivery, and digital services. Changing Roles of Stakeholders Public agencies may need to adapt their roles and responsibilities in response to MOD and vehicle automation. The Los Angeles Metro Office of Extra­ ordinary Innovation (LA Metro OEI) was established in 2015 to identify, evaluate, develop, and implement new approaches to mobility innovation. Similarly, the Colorado Department of Transportation previously implemented a program called RoadX to apply technologies [e.g., intelligent transportation systems (ITS)] for enhanced mobility, efficiency, and safety. Table 5, Table 6, and Table 7 provide examples of public agencies that may need to adapt their roles and responsibilities with the advent of vehicle automation. Public agencies may also need to establish consistent standards across regions and jurisdic­ tions to support AV deployment. Additional departments and agencies may need to be devel­ oped to regulate and support the deployment of AVs. (continued on next page) Department/ Agencies Administration Current Responsibilities Potential Future Responsibilities U.S. Department of Health and Human Services U.S. Occupational Safety and Health Administration OSHA Protects employee health by setting and enforcing standards for workplace conditions and providing training, outreach, education, and assistance for employees and employers. Ensure that new industries (e.g., AV car manufacturing plants) adhere to safety standards similar to other industries. U.S. Department of Homeland Security DHS Works within and outside the United States to prepare for, prevent, and respond to domestic emergencies and to protect civilians. Implement safety measures to AVs to minimize vulnerability to attacks via cyber hacking. U.S. Department of Transportation Federal Aviation Administration FAA Regulates and oversees civil aviation within the United States and the operation and development of the National Airspace System. Provide guidance to other federal agencies, particularly those within the U.S. DOT, to create a more centralized process for AV policy development. na na U.S.DOT Maintains and develops national transportation systems and infrastructure and provides state agencies with funding. Alter infrastructure, allocate rights-of-way, tax MOD and AVs, and offer supplemental funding to local communities for MOD and AVs integration. U.S. National Highway Traffic Safety Administration NHTSA Reduces deaths, injuries, and economic losses on roadways by enforcing vehicle performance standards and partnering with state and regional agencies. Develop and implement operational standards and permitting processes for emerging modes (e.g., facilitate peer exchanges to disseminate best practices for MOD and AV integration). Table 5. Current and potential responsibilities of federal agencies.

20 Shared Automated Vehicle Toolkit: Policies and Planning Considerations for Implementation Department/ Agencies Administration Current Responsibilities Potential Future Responsibilities Independent Agencies U.S. Consumer Product Safety Commission CPSC Promotes the safety of consumer products by reducing unreasonable risks, evaluating products, and conducting product- related research. Develop standards for AVs to ensure that they are designed to be fail-safe and accessible by a variety of users. U.S. Environmental Protection Agency EPA Protects human health and the environment by developing and enforcing regulations, providing grants, publishing information, studying environmental issues, and sponsoring partnerships. Monitor the environmental effects of emerging modes (e.g., MOD, AVs) including life cycle analyses such as battery destruction for EVs. U.S. Federal Communications Commission FCC Regulates communication including radio, television, and phone industries originating or terminating in the United States. Monitor communications between vehicles (e.g., vehicle- to-vehicle), vehicle-to- infrastructure, and riders-to- vehicles to ensure communication is safe and efficient. Note: na = not applicable. Table 5. (Continued). Department/ Agency Acronym Current Responsibilities Potential Future Responsibilities Department of Insurance DI Oversees insurance regulations, enforces consumer protections, educates consumers, and ensures stability in state insurance markets. Develop insurance regulations and consumer protections for AV providers, owners, and passengers. Department of Motor Vehiclesa DMV Licenses drivers and maintains a variety of other functions including registering vehicles, issuing identification cards, and maintaining driving records. Offer licensing for AV operators and develop other forms of licensing/identification for passengers who will use shared modes (e.g., SAVs) but do not operate them. Department of Transportation DOT Plans, designs, constructs, operates, and maintains projects across transportation modes and allocates federal financial resources. Include emerging modes (e.g., MOD, SAVs) in transportation plans and projects throughout the state. Highway Patrol — Monitors and enforces safety on state and federal highways, responds to crashes and emergencies, and helps local law enforcement. Monitor emerging modes in accordance with recently developed regulations (e.g., AVs may operate at faster speeds than human- operated vehicles because of their lower margin for error). Public Utilities Commission PUC Makes and enforces regulations regarding the rates and services of public utilities (e.g., rail transit and passenger transportation companies, telecommunications). Develop regulations for AV operations. State Workforce Agencies/State Employment Agencies SWA/ SEA Provides resources for people seeking jobs including providing employment information and offering job training. Develop job training programs to help employees of industries impacted by increasing vehicle automation. aThe title of this department may vary by state (e.g., Michigan’s DMV is referred to as the Secretary of State). Table 6. Current and potential responsibilities of state agencies.

Stakeholders and Organizational Readiness 21   Case Study: Los Angeles Metro Office of Extraordinary Innovation The LA Metro OEI was established to help identify, evaluate, develop, and implement new approaches to transportation innovation and mobility. To carry out this work, OEI has three program areas: • Strategic Planning Metro Vision 2028: The agency-wide strategic plan holds LA Metro’s plan to improve mobility in Los Angeles County. The plan explains what the public can expect from the agency 2018–2028. The plan includes adding more transportation options in Los Angeles, improving transportation service quality, and working collaboratively to enhance accessibility and mobility. • Unsolicited Proposals Program: This program allows private-sector companies working on transportation innovations to present new ideas directly to the agency for review and evaluation, jump-starting the traditional public procurement process. Proposals could lead to a demonstration, a pilot project, or, in the most successful cases, a full deployment across the agency’s system. Partnership models could include finance-based public-private partnerships for innovative delivery of significant capital investments or new partnership models that allow the agency to use private-sector innovation to enhance project outcomes. For example, one project that is currently being considered from an unsolicited proposal is an aerial tram connecting LA Metro’s Union Station to Dodger Stadium. • New Mobility Program: This program uses pilot projects to test new service delivery methods that include greater private-sector involvement, more focus on customer experience, and improved mobility and access. For example, LA Metro is currently working on developing a transit corridor in the eastern portion of the San Fernando Valley. This transit corridor will extend the current light rail system, add additional public transit stops, and adapt streets to prioritize active and public transportation. These programs allow LA Metro to quickly explore emerging ideas and technologies and develop plans to implement innovations. Source: Los Angeles Metro 2019. Agency Current Responsibilities Potential Future Responsibilities City Manager/City Mayor Oversees city resources, including budget and personnel, and informs the mayor on projects. Allocate resources for testing and developing emerging modes. Law Enforcement Supports community safety by enforcing laws, preventing crimes, responding to emergencies, and providing support services. Enforce new standards specifically targeted toward emerging modes (e.g., SAV-only lanes on highways). Parking Authorities Maintains and provides parking by uniformly enforcing parking ordinances and laws. Develop parking policies for AVs to ensure they are parked in proper facilities and do not increase congestion by roaming. Planning Agencies Develops localized plans for an area and determines which planning applications are granted. Include emerging modes in plans and develop standards to evaluate and eventually approve planning applications by AV providers. Public Transit Agencies Provides safe and reliable transportation. Include emerging modes in the transportation network. MPO/RTPO Identifies local transportation needs, assists with planning, and supports local and state governments’ goals. Identify ways to use MOD and AVs to meet local needs and enhance transportation networks. Table 7. Current and potential responsibilities of local agencies.

22 Shared Automated Vehicle Toolkit: Policies and Planning Considerations for Implementation Future Regional Planning In the future, regional planning organizations (e.g., MPOs and RTPOs) seeking to implement and support AV services may need to • Engage with and reach out to community members to understand what needs could be met by AVs, • Identify the goal(s) of AV implementation (e.g., facilitating first- and last-mile connections to public transit), • Develop a plan for implementation, • Identify methods local agencies (e.g., public transit authorities) could employ to support the plan, • Facilitate peer exchanges to ensure that the plan is implemented according to identified best practices, • Ensure the plan abides by state and federal standards for AVs, • Implement the plan’s action items, and • Evaluate the plan to assess whether it has achieved desired goals. Organizational Readiness As stakeholders adapt their roles and responsibilities, they may also need to gain an understanding of their organization’s readiness for MOD and vehicle automation. Table  8 includes key questions organizations can use as guides to prepare themselves. Funding Sources As organizations prepare for MOD and AVs, they may need to access new funding sources and face challenges obtaining the necessary funding to pilot, implement, integrate, manage, and improve these modes and systems. Appendix B: “Sample Policies” provides policy examples using unique funding sources. Other funding strategies and sources agencies may consider include: • Business Model Changes: Innovative transportation services can be offered through business models that allow the provider to make a profit. • Funding Redistribution: Funds from existing revenue streams (e.g., taxes) can be redistributed and reallocated to the development and maintenance of new programs. • Infrastructure Use Payments: Taxes, tolls, and other fees can be implemented on different infrastructure users (e.g., drivers on bridges, businesses using loading zones). Chapter 11 “Pricing” provides further information on strategies to price roadway users. • Memberships: Services could be provided in a model that requires users to pay a membership fee; the fee can be used to help finance these services. • Parking Revenue: Parking fees can be implemented or increased to generate more funds. • Partnerships: Partner organizations can provide direct financial support or offer support in other ways, such as providing necessary infrastructure (e.g., AV maintenance facilities). • Service Use: Services can be offered directly to organizations (e.g., employment centers, universities) in exchange for support, such as a share of some of the operating costs or by encouraging users (e.g., employees, students) to use the provided services. This support and/or anticipated ridership can financially support new services.

Stakeholders and Organizational Readiness 23   Topic Area Question Description Example Managerial Support Is there managerial support for MOD and AVs? Identify internal roles, groups, and/or systems to manage MOD and AVs. • Develop a new position for AV monitoring. • Place additional MOD- related responsibilities on internal teams. Regulatory System Has a regulatory and/or monitoring system been identified and articulated? Preemptively determine a regulatory and monitoring system to better prepare for the needs and impacts of MOD and AVs. • Develop AV datasets to inform plans. • Integrate AV considerations into existing regulations. Impacts What areas may MOD and AVs impact? Identify potential impact areas (e.g., congestion, accessibility) of MOD and AVs. • Evaluate accessibility by low-income households. • Monitor availability in rural areas. Indicators How will we know if MOD and AVs are impacting certain areas? Determine metrics or key indicators that can assist with identifying the impacts of MOD and AVs. • Check access to employment opportunities before and after AV adoption. • Evaluate travel times after the introduction of MOD. Prepare for Impacts on Labor How does society prepare for the impacts of vehicle automation on labor? Identify potential impacts (both positive and negative) on labor and develop strategies to mitigate the adverse impacts. • Establish workforce development programs to provide training and job placement services for impacted job classifications. Evaluate for Social Equity How do we ensure that MOD and AVs support social equity? Conduct research to understand and evaluate the impacts of MOD and AV on social equity and justice issues. • Conduct community outreach for insights on the impacts of MOD and AVs. • Ensure artificial intelligence and reinforcement learning emphasize fairness. Documented Indicators and Impacts How do we document the impacts of MOD and AVs? Catalog the key indicators and impacts of MOD and AVs in a systemic way to inform regulatory systems and future changes (e.g., curbspace use). • Create database for MOD indicators. • Develop reporting system for AV collisions. Organizational Relationships Are there relationships or partnerships in place to assist with the inclusion of MOD and AVs? Develop or identify relationships with outside organizations to help create a more unified and organized approach to adapting to MOD and AVs. • Develop partnerships with local law enforcement for regulation. • Enhance relationships with research institutions to better understand impacts. Table 8. Organizational readiness questions. Key Takeaways • A wide variety of stakeholders enable MOD and AV deployment. • Current regulatory roles and responsibilities at different levels of government may need to be adapted to accommodate AVs. • Some public agencies may need to reorganize internally to prepare for MOD and AVs, includ­ ing critically evaluating managerial support, regulatory systems, impacts and indicators, doc­ umented procedures, and partnerships. • Ensure social equity and labor impacts are considered. • Unique funding sources can be used to support MOD and AV operations.