State and Local Impacts of Automated Freight Transportation Systems (2023)

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2023 N A T I O N A L C O O P E R A T I V E H I G H W A Y R E S E A R C H P R O G R A M NCHRP RESEARCH REPORT 1028 State and Local Impacts of Automated Freight Transportation Systems The Tioga Group, Inc. Moraga, CA Fehr & Peers Los Angeles, CA Hickory Ridge Group, LLC Highland, MD World Class Logistics Consulting, Inc. Seal Beach, CA Subscriber Categories Planning and Forecasting • Policy • Freight Transportation Research sponsored by the American Association of State Highway and Transportation Ofcials in cooperation with the Federal Highway Administration

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM Systematic, well-designed, and implementable research is the most effective way to solve many problems facing state departments of transportation (DOTs) administrators and engineers. Often, highway problems are of local or regional interest and can best be studied by state DOTs individually or in cooperation with their state universities and others. However, the accelerating growth of highway transporta- tion results in increasingly complex problems of wide interest to high- way authorities. These problems are best studied through a coordinated program of cooperative research. Recognizing this need, the leadership of the American Association of State Highway and Transportation Officials (AASHTO) in 1962 ini- tiated an objective national highway research program using modern scientific techniques—the National Cooperative Highway Research Program (NCHRP). 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e 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. e 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. John L. Anderson is president. e 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. e 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. e 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.nationalacademies.org. e Transportation Research Board is one of seven major programs of the National Academies of Sciences, Engineering, and Medicine. e mission of the Transportation Research Board is to provide leadership in transportation improvements and innovation through trusted, timely, impartial, and evidence-based information exchange, research, and advice regarding all modes of transportation. e Board’s varied activities annually engage about 8,000 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. e 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 AUTHOR ACKNOWLEDGMENTS The research reported herein was performed under NCHRP Project 20-102(22) by The Tioga Group, Inc., as prime contractor, in association with Fehr & Peers, Hickory Ridge Group, LLC, and World Class Logistics Consulting, Inc., as subcontractors. The Tioga Group, Inc.: Daniel Smith, Principal, Principal Investigator/Project Manager; Frank Harder, Principal; and Jeffrey Smith, Research Associate Fehr & Peers: Fatemeh Ranaiefar, PhD, Freight Discipline Lead; Jolene Hayes, AICP, Senior Associ- ate; Steve Brown, PE, Senior Principal; Seth Contreras, PhD, Senior Planner; and Marta Polovin, Transportation Planner Hickory Ridge Group, LLC: Heather Monteiro, PhD, Lead Researcher and Data Scientist World Class Logistics Consulting, Inc., Jon DeCesare, President CRP STAFF FOR NCHRP RESEARCH REPORT 1028 Christopher J. Hedges, Director, Cooperative Research Programs Waseem Dekelbab, Deputy Director, Cooperative Research Programs, and Manager, National Cooperative Highway Research Program Trey Joseph Wadsworth, Senior Program Officer Mazen Alsharif, Senior Program Assistant Natalie Barnes, Director of Publications Heather DiAngelis, Associate Director of Publications Kami Cabral, Editor NCHRP PROJECT 20-102(22) PANEL Field of Special Projects Caroline A. Mays, Texas Department of Transportation, Austin, TX (Chair) Jason Beloso, Washington State Department of Transportation, Olympia, WA Nicole DuPuis, National League of Cities, Washington, DC Robert F. Haag, Perfect Transportation LLC, Indianapolis, IN Thomas F. Jensen, United Parcel Service, Washington, DC Aravind Kailas, Volvo Group North America, Los Alamitos, CA J. Kevin Lacy, North Carolina Department of Transportation, Garner, NC Jun Liu, University of Alabama, Tuscaloosa, AL Brooks Rainwater, National League of Cities, Washington, DC Anne Strauss-Wieder, North Jersey Transportation Planning Authority, Newark, NJ French F. Thompson, BNSF Railway, Fort Worth, TX Jeffrey Robert Purdy, FHWA Liaison 16520-00b_FM-4thPgs.indd 4 5/22/23 3:31 PM

NCHRP Research Report 1028: State and Local Impacts of Automated Freight Transporta- tion Systems presents a decision framework for state and local transportation agencies to consider emerging technologies that may include automated freight transportation sys- tems. This report will be of immediate interest to state and local transportation planners and decision-makers as they seek to understand emerging freight transportation technolo- gies, including what information and data they will need to prepare for automated freight transportation systems while meeting other community goals. Much attention has been focused on automated vehicles and how their deployment may help state and local transportation officials achieve system reliability and safety goals. Auto- mation of the freight transportation sector is evolving rapidly, and there is uncertainty about the emerging technologies for freight automation, particularly the timelines for deployment and business use cases that state and local agencies may need to consider. The emerging freight transportation technologies may pose challenges and opportunities for state and local agencies. Transportation planning and policymakers need a decision framework to assist with the challenges and opportunities before deploying freight automated vehicles. Challenges may include infrastructure readiness or public perception of automated vehicles, and opportu- nities could include enhanced curb space management and congestion mitigation. The type of freight automated vehicle, whether over-the-road freight automated vehicles, sidewalk robots, or unmanned aerial vehicles, may also play a role when considering deployments. Under NCHRP Project 20-102(22), The Tioga Group, Inc., was asked to develop a deci- sion framework for state and local agencies to (1) identify, evaluate, and address the poten- tial impacts (both positive and negative) of connected and automated freight transportation technologies on policies and practices; and (2) identify ways in which state and local agencies can enable automated freight transportation technologies. In addition to the final report published as NCHRP Research Report 1028, an anno- tated bibliography (Appendix E) is available on the National Academies Press website (nap.nationalacademies.org) by searching for NCHRP Research Report 1028: State and Local Impacts of Automated Freight Transportation Systems. F O R E W O R D By Trey Joseph Wadsworth Staff Officer Transportation Research Board

1 Summary 13 Chapter 1 Introduction 13 Background 13 Scope 15 Research Approach 15 Decision Framework Approach 19 Chapter 2 Literature Review 19 Overview 20 Literature Findings 21 State and Local Planning Status 23 Annotated Bibliography 24 Chapter 3 FAV Supply Chain Roles and Deployment 24 SAE Automation Levels 24 FAV Deployment 28 Supply Chain Roles 33 Chapter 4 OTR FAVS: Self-Driving Trucks 33 State of the Art and Development Direction 40 OTR FAVs in the Supply Chain 50 OTR FAV ODD and Trip Segments 57 OTR FAV Truck Scenarios 61 OTR FAV Issues and Impacts 62 OTR FAV Decision Framework 81 OTR FAV Deployment Triggers and Timeline 84 Conceptual OTR FAV Deployment Timeline 85 Chapter 5 SADRs 85 Definitions 87 SADRs in the Supply Chain 89 SADR Deployment Scenarios 90 State and Local SADR Impacts 91 SADR Decision Framework 102 Conceptual SADR Deployment Timeline 104 Chapter 6 UAVs/Drones 104 State of the Art and Development Direction 105 UAVs/Drones in the Supply Chain 107 UAV/Drone Deployment Scenarios 110 State and Local UAV Impacts 110 UAV Deployment Issues 112 UAV/Drone Decision Framework 119 Conceptual UAV Timeline C O N T E N T S

121 Chapter 7 Findings 121 Overall 121 State of FAV Development 122 FAV Deployment 124 State and Local Impacts 126 State and Local Policy Implications 129 Decision Framework 130 References and Other Resources 133 Abbreviations and Acronyms 136 Appendix A Off-Road Automation 144 Appendix B Warehouse and Distribution Center Automation 151 Appendix C State SADR Regulations 156 Appendix D Conceptual Benefit-Cost Analysis 164 Appendix E Annotated Bibliography Note: Photographs, figures, and tables in this report may have been converted from color to grayscale for printing. The electronic version of the report (posted on the web at nap.nationalacademies.org) retains the color versions.