Notice of Request for Comments: Scope of the Study on the Impact of Automated Vehicle Technologies on Workforce |
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Finch Fulton
U.S. Department of Transportation
9 October 2018
[Federal Register Volume 83, Number 195 (Tuesday, October 9, 2018)]
[Notices]
[Pages 50747-50749]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2018-21842]
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DEPARTMENT OF TRANSPORTATION
Office of the Secretary
[Docket No. DOT-OST-2018-0150]
Notice of Request for Comments: Scope of the Study on the Impact
of Automated Vehicle Technologies on Workforce
AGENCY: Office of the Secretary (OST), U.S. Department of
Transportation (DOT).
ACTION: Notice of request for comments.
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SUMMARY: OST is announcing a request for information to solicit comment
and feedback on the scope of the congressionally-required comprehensive
analysis of the impact of automated vehicle technologies on workforce.
This study will be conducted by DOT in consultation with the Department
of Labor to provide a comprehensive analysis of the impact of [Advanced
Driver Assist Systems] ADAS and [Highly Automated Vehicles] HAV
technologies on drivers and operators of commercial motor vehicle,
including the potential for any labor displacement. DOT will also
coordinate this initiative with the U.S. Departments of Commerce and
U.S. Department of Health and Human Services.
Each component of the study will engage the relevant interested and
affected stakeholders such as industry representatives, driver and
operator groups, and workforce training providers to ensure input from
across the diverse commercial and non-commercial driver industry. While
it may not be feasible to precisely predict the exact capabilities or
timing of new automated vehicles technologies entering the marketplace,
this study may construct statistical models, use-cases, and scenarios
based projections based on the best available data on market forecasts,
industry trends, and relevant labor markets to evaluate different
technology penetration scenarios and their potential effects on the
workforce and related factors.
The objectives of the request for comments on the comprehensive
analysis of the impact of automated vehicle technologies on workforce
are to obtain feedback into the scope of the study regarding the
magnitude of the potential pace of transition in the transportation
workforce and how other sectors of the workforce will adapt to the
quality of life effects due to automation. The study will also examine
training availability and what will be required to transition the
traditional commercial driver into the new environment including
transit bus automation. Finally, the study will analyze the issues of
driver situational awareness in vehicles which may require operator re-
engagement, the safety of truck platooning, and related traffic
management.
Background: The pace of development and deployment of automated
vehicle-related technology is expected to accelerate over the next
decade. Likewise, the effects of this new technology on the current
workforce is a concern to operators and industry. In August 2017, a
Department of Commerce's Office of the Chief Economist study focused on
``workers impacted by the adoption of autonomous vehicles used on
roadways, such as automobiles, buses, and trucks (The Employment Impact
of Autonomous Vehicles,\1\ Economics and Statistics Administration
Issue Brief #05-17). The study found that ``. . . the adoption of AVs
has the potential to impact a sizable share of jobs in the economy.''
This could include job creation as well as displacement. Also, the
America's Workforce and the Self-
[[Page 50748]]
Driving Future \2\ report, published by Securing America's Future
Energy in June 2018, outlines the potential impact of autonomous
vehicles use on the labor force, noting some of the complexities in
assessing job gain/loss and displacement, as well as potential long-
term employment and societal benefits. In addition to the introduction
of automated vehicles, the Nation's commercial driver \3\ pool is
impacted by other dynamics such as operator pay, route preferences, and
demographics.
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\1\ http://www.esa.doc.gov/sites/default/files/Employment%20Impact%20Autonomous%20Vehicles_0.pdf.
\2\ https://avworkforce.secureenergy.org/wp-content/uploads/2018/06/Groshen-et-al-Report-June-2018-1.pdf.
\3\ Commercial drivers for the scope of this study is defined as
professional drivers who earn a living driving tow trucks, tractor
trailers, motor coaches, and buses.
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Advanced transportation technologies present enormous potential for
improving the mobility of travelers with disabilities vastly enhancing
quality of life, workplace access, and opportunities for full
participation in the workforce and in society. Through the Accessible
Transportation Technologies Research Initiative (ATTRI), DOT is leading
efforts to develop and implement transformative applications to improve
mobility options for all travelers, particularly those with
disabilities. DOT is seeking to explore innovative travel options
focusing its efforts on removing barriers to transportation for people
with visual, hearing, cognitive, and mobility disabilities through all
steps of the trip-making process. DOT seeks to remove barriers to
transportation across the ``complete trip'' chain leveraging advanced
technology to enable people to travel independently any time, to any
place, regardless of their individual abilities.
The 2018 Consolidated Appropriations Act provided up to $1.5
million to the Secretary of Transportation, in consultation with the
Secretary of Labor, to conduct a comprehensive analysis of the impact
of ADAS and HAV technologies on drivers and operators of commercial
motor vehicles, including labor displacement. For purposes of this
analysis, drivers and operators, who earn an income by driving, of
commercial motor vehicles includes drivers which require a commercial
driver's license and those that do not; and package delivery drivers,
taxi, mobility as a service, and Transportation Network Companies
(TNC).
Statement of Work (SOW): The general areas of inquiry are
summarized and listed below. Specific research questions could be
further adopted during the study examination after assumptions and
study parameters are validated based on input and feedback obtained
through the request for comments period. Comments obtained from this
notice period will be used to calibrate the study strategy to enable
the maximum value proposition.
1. Labor force transformation studies including potential
statistical models to generate estimates of labor force effects given
various HAV and ADAS adoption/timeline scenarios and segments of
freight and passenger transportation that could be affected.
2. Labor force training needs including minimum and recommended
training requirements, labor market programs that link workers to
employment and public or private training programs to address skill
gaps.
3. Technology operational safety issues impact to situational
awareness caused by HAV and ADAS including options for reducing safety
risks of reduced situational awareness and visibility, mobility, and
safety issues related to platooning.
4. Quality of life improvements due to automation including mental
fatigue related to traffic and queueing; enhanced travel choices, new
job opportunities, and accessibility leading to independent travel and
workplace access for people with disabilities, older adults, and
individuals with functional impairments across the lifespan.
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Area of inquiry Research questions General study tasks
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1. Labor Force Transformation/Displacement
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Pace of potential job When should stakeholders anticipate Conduct a comprehensive literature
displacement from ADAS and HAV widespread introduction of AV review of related studies and
adoption. technology which would directly methodologies.
impact the driver workforce? Create a predictive statistical model
What are the potential effects from to generate estimates of labor force
the different scenarios regarding effects given various adoption/
adoption timelines and technology timeline scenarios. The model should
developments on the professional be well-documented and replicable by
driver labor force? outside parties.
Segments of freight and passenger What are the defined segments of Create a typology of the specific
transportation that could be commercial drivers in the United segments of commercial and non-
affected. States? commercial drivers as it relates to
Which of these segments are most trucks, buses, mail/package delivery
likely to be impacted, negatively or drivers, and taxis/transportation
positively, and to what extent? network companies.
Identify each segment most likely to
be effected, and the extent of that
effect. The effect could be job
displacement or increased demand for
that driver segment.
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2. Labor Force Training Needs
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Minimum and recommended training As commercial and non-commercial Catalog and annotate comparative
requirements. drivers transition into other studies from other transitioning
transportation, or even unrelated, labor markets e.g. manufacturing,
positions, what are new likely agriculture, banking, etc.
opportunities and what are the Identify the possible training needs
minimum levels of training and skills for the variety of commercial and
necessary to occupy those positions? non-commercial drivers potentially
What are the training/skills impacted by AVs--both newly created
requirements for those jobs most in transportation jobs or jobs in
demand? related or non-related sectors.
Produce recommendations of training
requirements to meet the needs
identified and evaluate the
available federal and state programs
to meet these needs.
Existing labor market programs What federal and state government- Prepare and annotate a comprehensive
that link workers to employment. sponsored programs are used to match inventory of current federal and
individuals with employment state labor market programs that
opportunities? link workers to job opportunities.
What is the capacity of each program Evaluate the capacity of these
to meet the needs of displaced programs to meet the needs of
commercial and non-commercial commercial and non-commercial
drivers? drivers displaced by autonomous
vehicles.
Identification of how existing What gap(s) exist between existing Identify modifications to existing
public or private training programs and the needs of commercial public or private training programs
programs can be modified to and non-commercial drivers, including to include the teaching of new
address skill gaps. transitioning to new jobs? skills to safely operate ADS
If gaps exist, what recommended equipped vehicles as well as new
modifications to existing programs skills needed to transition to other
are needed to meet these needs? jobs.
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[[Page 50749]]
3. Technology Operational Safety Issues
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Impact to situational awareness What are the risks of reduced Complete a literature review on the
caused by ADS and ADAS. situational awareness for a driver risks of the lack of driver
using ADAS technology, such as the vigilance and reduced situational
potential for increased drowsiness? awareness when operating a vehicle
equipped with ADS or ADAS
technologies. Produce a typology on
the kinds of risks that are
generated by this technology.
Options for reducing safety risks Quantify the likelihood of reduced Review existing human subject
of reduced situational awareness. driver situational awareness and research and engage relevant
identify methods and options to stakeholders to identify existing
mitigate these risks. and potential technological
applications to address human
factors risk.
Visibility, mobility, and safety What are the principle safety issues Identify and catalog existing studies
issues related to platooning. associated with the use of platooning on visibility, mobility, and safety
such as the reduced visibility of issues related to truck platooning.
drivers in the following vehicles, Provide an annotated inventory of
and the interaction of passenger cars current or developing technologies
with truck platoons at highway which can address these issues and
speeds? What are the potential their likelihood of adoption.
positive benefits of platooning Catalog state laws addressing truck
technologies? platoon operations.
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4. Quality of Life Effects Due to Automation
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Potential effects to health and Given that higher level of automation Conduct a comprehensive literature
quality of life due to ADS and allows drivers, subject to this review of health issues associated
ADAS. study, to conduct other tasks other with commercial and non-commercial
than driving, how will this impact drivers, including mental fatigue
the health and quality of life of the related to traffic and queueing.
driving labor force. Explore insights into how HAV and
What are the potential economic ADAS can mitigate health issues,
benefits to increased access to jobs state of the industry pertaining to
and the community for transportation- ADAS and HAV mobility as a service
disadvantaged riders such as people including research studies relating
with disabilities and seniors. to technology readiness, enabling
new job opportunities, and gaps in
achieving the complete trip vision
for older Americans and people with
disabilities.
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Note: Each of the four study components may include stakeholder outreach, as appropriate, to inform the analysis
and identify relevant data sources.
Comments are requested on the following questions regarding the
Statement of Work:
1. Is the SOW in line with public interest?
2. Should the SOW be expanded or reduced to include or exclude any
topic(s)?
3. Are there specific literature or studies that have been
conducted on this subject that DOT and DOL should review before
initiating this comprehensive analysis?
All comments and presentations should be submitted to the docket
for consideration.
FOR FURTHER INFORMATION CONTACT: If you have questions about this
notice, please contact us at automation@dot.gov or Kareem Habib (202-
366-1601) or Sujeesh Kurup (202-366-9953).
SUPPLEMENTARY INFORMATION:
Written Comments: Please submit all written comments no later than
November 5, 2018, by any of the following methods:
Federal Rulemaking Portal: Go to http://www.regulations.gov. Follow the online instructions for submitting
comments.
Mail: Docket Management Facility: DOT, 1200 New Jersey
Avenue SE, West Building Ground Floor, Room W12-140, Washington, DC
20590.
Hand Delivery or Courier: 1200 New Jersey Avenue SE, West
Building Ground Floor, Room W12-140, Washington, DC 20590, between 9
a.m. and 5 p.m. ET, Monday through Friday, except Federal Holidays.
Fax: 202-366-1767.
Instructions: All submissions must include the Agency name and
docket number. Note that all comments received will be posted without
change to http://www.regulations.gov, including any personal
information provided. Please see the Privacy Act discussion below.
Docket: For access to the docket, go to http://www.regulations.gov
to find Docket No. DOT-OST-2018-0150 at any time or to 1200 New Jersey
Avenue SE, West Building, Ground Floor, Room W12-140, Washington, DC
20590, between 9 a.m. and 5 p.m., Monday through Friday, except Federal
Holidays. Telephone: 202-366-9826.
Privacy Act: Anyone is able to search the electronic form of all
comments received into any of our dockets by the name of the individual
submitting the comment (or signing the comment, if submitted on behalf
of an association, business, labor union, etc.). You may review DOT's
complete Privacy Act Statement in the Federal Register published on
April 11, 2000, (Volume 65, Number 70; Pages 19477-78), or you may
visit http://www.regulations.gov/privacy.html.
Confidential Information: Any submissions containing Confidential
Information must be delivered to OST in the following manner:
[cir] Submitted in a sealed envelope marked ``confidential
treatment requested'';
[cir] Accompanied by an index listing the document(s) or
information that the submitter would like the Departments to withhold.
The index should include information such as numbers used to identify
the relevant document(s) or information, document title and
description, and relevant pages numbers and/or section numbers within a
document; and
[cir] Submitted with a statement explaining the submitter's grounds
for objecting to disclosure of the information to the public.
OST also requests that submitters of Confidential Information
include a non-confidential version (either redacted or summarized) of
those confidential submissions in the public docket. In the event that
the submitter cannot provide a non-confidential version of its
submission, OST requests that the submitter post a notice in the docket
stating that it has provided OST with Confidential Information. Should
a submitter fail to docket either a non-confidential version of its
submission or to post a notice that Confidential Information has been
provided, we will note the receipt of the submission on the docket,
with the submitter's organization or name (to the degree permitted by
law) and the date of submission.
Issued in Washington, DC, on October 3, 2018, under authority
delegated at 49 U.S.C. 1.25a.
Finch Fulton,
Deputy Assistant Secretary for Transportation Policy.
[FR Doc. 2018-21842 Filed 10-5-18; 8:45 am]
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