Vehicle Automation and Fully Self-Driving Cars

Today’s cars are incorporating increasing levels of automation to enable a car’s computer—rather than the human driver—to accomplish key driving tasks. For example, consumers can now buy partially automated cars that can park themselves, keep themselves centered in their lane, automatically brake to avoid a fender-bender, and speed up and slow down to keep pace with traffic, as long as a driver still behind the wheel is able to take over as needed. As the technology evolves, cars will be able to complete all driving tasks with human supervision. And eventually, they will be fully self-driving, meaning that they will drive themselves without human oversight. Fully self-driving cars are also known as autonomous vehicles.

SAE International, formerly known as the Society for Automotive Engineers, developed the following classification system that the National Highway Traffic Safety Administration uses to describe the different levels of automation:

• Level 0, no automation: The driver is responsible for all aspects of driving.
• Level 1, driver assistance: One aspect of driving is automated, with the driver still in control of the car. For example, a vehicle might be able to control speed or keep itself from moving into another lane, but not both.
• Level 2, partial automation: More than one aspect of driving is automated, with the driver still in control of the car. For example, the car could control both steering and speed.
• Level 3, conditional automation: The car takes over driving, including by controlling speed, steering, and braking. But a human driver must be ready to take control quickly.
• Level 4, high automation: The car takes over driving without the need for human intervention. But it can do so only under certain conditions, such as in sunny weather.
• Level 5, full automation: The car takes over all aspects of driving in all conditions. Human driving is completely eliminated.

If policymakers act with intention, this technology could fundamentally and positively alter society. But these outcomes are not guaranteed.

Among the potential benefits are:

• Expanded mobility for underserved populations: Fully self-driving cars may increase mobility options for people who do not drive today, such as people with disabilities, people with low incomes, and people living in rural areas. Expanding access will require policymakers, manufacturers, and key stakeholders to work proactively. For example, without concerted attention, fully self-driving cars may not incorporate universal design or perform appropriately on unpaved or unmarked roads in rural areas. In addition, policymakers need to determine how to ensure that people with low incomes have access to the benefits of fully self-driving cars despite their expected high retail price. Without planning, an influx of fully self-driving vehicles could decrease public transportation ridership. This could undermine what is a prime source of affordable transportation in many areas.
• Increased safety for all: Automated vehicle technology continues to evolve to provide safety benefits, such as automatic braking to avoid crashes and fender-benders. As we evolve toward fully self-driving cars, these benefits may increase. For example, fully self-driving vehicles cannot be distracted or drunk. But neither are they perfect. They can also make mistakes, so crashes will not be eliminated. Ensuring safety—both for those in the car and pedestrians, cyclists, and others outside the vehicle—will be most challenging during the transition period. Roads will have to accommodate different levels of automation.
• Improved livability: If policymakers implement appropriate land-use and pricing policies, fully self-driving cars may lead to vast changes in communities. There could be less traffic congestion, more room for bike lanes, improved safety for pedestrians, denser developments, and more green space. Some of these benefits are due to these cars’ sensors, which allow fully self-driving cars to drive much closer to other vehicles and in narrower lanes. Fewer parking lots and garages may be needed. This is particularly the case if fully self-driving vehicles spark more shared use and especially if multiple people ride in a vehicle at once. Instead of cars being idle all day in parking lots, they could be used continually to ferry people to and from their destinations.

On the other hand, fully self-driving cars have the potential to decrease livability by contributing to sprawl. For example, people might not mind long car rides because they can use that time productively instead of driving. Fully self-driving cars could also undermine the infrastructure for other forms of transportation. For example, shared use might lower the cost of each ride so much that people choose to take an autonomous taxi rather than walk, bike, or take public transportation. As a consequence, traffic congestion may increase. Public transportation demand could go down. In turn, this could reduce service. That would harm the populations that are most in need of affordable public transportation options.

Thus, some of the benefits of fully self-driving cars will only be realized if people share vehicles and continue to use high-capacity public transportation in dense urban areas. Some industry leaders expect that car ownership will greatly decrease once fully self-driving cars are deployed and that the shared use model will dominate.

Achieving these potential benefits will require the engagement of federal, state, and local policymakers.

Federal policymakers are responsible for ensuring vehicle safety. As such, they hold primary responsibility for setting up flexible yet enforceable standards that will allow the industry to continue to innovate. At the same time, they must ensure vehicle safety and consumer protection. This has not happened to date. For example, existing regulations continue to require steering wheels and brake pedals, which will not be necessary with fully autonomous vehicles. A key challenge has been a lack of technical knowledge among regulators. To combat this, some have suggested that policymakers, automakers, consumer groups, and other stakeholders work in partnership to create dynamic and flexible safety standards. These standards should promote both innovation and safety.

Today, ensuring driver safety is the responsibility of state policymakers, who do so primarily through licensing. In the future—when cars are drivers, in the case of fully self-driving vehicles—this may mean that states will need to ensure vehicle safety, particularly if the federal government does not do so effectively.

Both state and local policymakers work to ensure road safety by setting and enforcing appropriate speed limits and designing streets to protect pedestrians and cyclists. They also play an important role in pricing the transportation system, such as setting tolls (see also Livable Communities Financing).

State and local policymakers will continue to make important infrastructure decisions that will greatly impact automated vehicle technology. For example, connected infrastructure that communicates with automated vehicles can promote safety and create less congested roads. Policymakers will also need to consider how to properly price the transportation system in order to promote societal benefits of the technology and avoid its potential pitfalls.

A key issue that remains is establishing consumer trust in automated driving technologies that will form the pathway to fully self-driving cars. Surveys show that many Americans appear reluctant to give up the control they have as drivers. This presents challenges in establishing the trust that will be needed to deploy fully self-driving cars in sufficient numbers to realize all the potential benefits. Consumer education and training are essential. Fortunately, automatic features are being incorporated slowly into new vehicles. By integrating education and training as these features come out, manufacturers can encourage users of all ages to learn gradually how to use these technologies. That way, they can develop trust and adopt new driver behaviors.

As cars incorporate more automated features, consumer issues take on increased importance. Among them are privacy, security, and liability in case of crashes.

Automated vehicles collect a large array of data on passengers and the surrounding environment. They already are becoming more integrated with other connected devices riders use, such as cell phones. This provides them access to even more data. Companies could generate income by selling access to this information. Consumers need to understand what information is collected, how it may be used or sold, and what their rights are to stop companies from collecting, using, or selling their data.

Data security issues develop in part because automated vehicles may transmit and receive information from other cars and infrastructure, such as traffic lights. Protecting the system from security hacks with the potential for great harm is essential.

Automated and fully self-driving cars are expected to be safer. However, crashes and injuries that require a determination of liability will still occur. As automated cars (and the hardware and software comprising them) continue to take on more responsibility for driving, determining liability in the case of a crash becomes more complex. This is particularly the case with partially automated vehicles (in which the driver must take over driving when needed). In such cases, the human driver or the manufacturers (of the car itself or the hardware or software comprising it) could all be liable for a crash. With fully self-driving cars, in which the car is fully responsible for driving, there is recognition that the manufacturers will be held responsible.

A related question is how the insurance marketplace will evolve. As the cars themselves become drivers, passengers may need to carry insurance, or the vehicle manufacturer or owner may do so.