1. Introduction

Driver and pedestrian fatalities entered a secular decline in the early 1970s, and this trend continued for nearly 40 years. But around 2010 this trend began to reverse. For example, pedestrian deaths bottomed out in 2009 at just over 4,100, but then climbed steadily until peaking at around 7,600 in 2022. In 2025, pedestrian fatalities remained well above their historical lows (6,700). Most of the increase in pedestrian deaths has been due to crashes at night. While no single cause explains the upward trend in crash-related fatalities, many factors are thought to contribute, including phones usage and in-cabin screens creating distractions, speeding, inadequate pedestrian infrastructure, weather hazards, and growing vehicle sizes.

Connected and automated vehicles (CAVs for short), by automating some or all of the dynamic driving task and sharpening driver awareness of the roadway environment and its potential hazards, help motorists become safer, more attentive drivers. Beyond delivering safe mobility for all transportation system users, CAVs improve travel time reliability, reduce congestion, and lower air pollution.

In 2022 KYTC published its Strategy for Connected and Automated Vehicles. This document sketched out how the agency could help public and private sector stakeholders leverage CAVs to improve transportation safety and efficiency. Since the Cabinet issued this document, the CAV landscape has evolved considerably and the agency has pursued several projects to build its capabilities in emerging vehicle technologies. These projects have helped staff better understand how CAVs will impact the long-term planning, development, and maintenance of Kentucky’s roads and bridges.

In 2023 KYTC wrapped up a project that implemented Automated Traffic Signal Performance Measures (ATSPMs) and Dedicated Short Range Communications (DSRC) infrastructure on US 231 in Bowling Green and KY 876/US 25 in Richmond. That year, the Cabinet also funded a planning study to evaluate the suitability of Interstate 64 between Lexington and Louisville as a CAV corridor.

Nationally, automated vehicle testing has accelerated, while the US Department of Transportation (USDOT) recently published its National Deployment Plan for Vehicle-to-Everything Technologies. These developments, alongside Kentucky’s recent legislation that authorizes the use of automated vehicles on state highways, motivated KYTC to produce a Strategy for Connected and Automated Vehicles Strategy Version 2.0. 

Version 2.0 is shorter and omits some of the background and historical information found in the first strategy. The first version remains archived on KYTC’s Strategy for Connected & Automated Vehicles Website. After providing a refresher on important terms, the strategy focuses on progress made in Kentucky (emphasizing legislation) and at the national level as well as steps the Cabinet will take to support the rollout of emerging vehicle technologies. Many steps appeared in Version 1.0, but they have been updated to reflect new developments.

2. Defining Connected Vehicles and Automated Vehicles

Connected vehicles (CVs) are equipped with in-vehicle or aftermarket devices that allow them to communicate data about their position, speed, trajectory, and other information. The messages broadcast and received by CV improve the situational awareness, mobility, and safety of users. Examples of messages include forward collision warnings, advisories that alert motorists of changes in driving conditions, suggested speeds for optimal progression, and red-light warnings.

For many years, dedicated short-range communications (DSRC) was seen as the likely foundation of CV communications. But a 2024 ruling by the Federal Communications Commission (FCC) winds down the use of DSRC technologies and permits in-vehicle units and roadside units (RSUs) to operate cellular vehicle-to-everything (V2X) in 30 megahertz of the 5.9 GHz band dedicated to intelligent transportation systems. V2X enables communication between vehicles and everything in the roadway environment: pedestrians, bicyclists, other vehicles, and roadside infrastructure via direct and/or cellular networks.

AVs execute some or all facets of the dynamic driving task without a human driver controlling steering, acceleration, and/or deceleration. The SAE International taxonomy and J3016 levels of driving automation categorize vehicles based on which actions they automate (Table 1). Level 0 – 2 vehicles have one or more ADAS and can be purchased in the US today.

Level 3 – 5 vehicles integrate ADS that power their self-driving capabilities. ADS-equipped vehicles process data from onboard sensors, cameras, GPS, radar, sonar, and Lidar to perceive the environment and then plan for and control vehicle movements. In the US, only Mercedes-Benz currently sells Level 3 vehicles, but just in California and Nevada, where Level 3 automation can only be used on a limited number of access-controlled roadways.

3.National- and State-Level Efforts Related to Emerging Vehicle Technologies

Both USDOT and the National Highway Traffic Safety Administration (NHTSA) have introduced policies and guidance to facilitate CAV deployment. NHTSA has issued several orders and rules to shore up the safety of all users in roadway environments that will handle a growing number of CAVs. These include:

• A 2021 Standing General Order (amended in 2023) that requires manufacturers and operators of vehicles with ADS and SAE Level 2 ADAS involved in crashes on publicly accessible roads to report those incidents to NHTSA. Reports must include data on the vehicle model and ADS/ADAS, incident location, conditions at the time of the crash, and a narrative that specifies ADS/ADAS features engaged when the crash occurred.
• A 2022 final rule that amends federal motor vehicle safety standards related to occupant protection to account for vehicles with ADS that lack traditional manual controls. This rule requires vehicles with ADS technologies to provide levels of occupant protection equivalent to those provided by conventional vehicles. 

• A 2024 final rule that requires new light vehicles to be equipped with automatic emergency braking (AEB) systems that can detect and brake in response to an imminent crash with a downstream vehicle or pedestrian by September 1, 2029. 

USDOT has issued two key documents, beginning with the 2021 Automated Vehicles (AV) Comprehensive Plan, which defines three ADS-related goals: 

• Promote collaboration and transparency with partners and stakeholders
• Modernize regulations to remove barriers to innovative vehicle designs and build safety-focused frameworks and tools to evaluate ADS technologies
• Work with partners and stakeholders to pursue research and demonstration activities to safely integrate ADS into transportation systems

In August 2024, USDOT issued Saving Lives with Connectivity: A Plan to Accelerate V2X Deployment. The agency views accelerated V2X deployment as critical for implementing the Safe System Approach. Consistent with this recognition, the document summarizes USDOT actions undertaken between August 2022 and publication of the report, including: 

• Withdrawing a proposal that mandated DSRC – V2V communications technologies in all new light vehicles
• Assisting the National Telecommunications and Information Administration and FCC with waiving rules to enable immediate deployment of V2X technologies
• Providing technical assistance and guidance to V2X deployers
• Promoting funding opportunities opened up by the Infrastructure Investment and Jobs Act

The document also contains the National V2X Deployment Plan, which lays out short-, medium, and long-term objectives. It emphasizes the need for robust cybersecurity to safeguard data communicated using V2X technologies and to protect personally identifiable information. The plan underscores that V2X can only succeed if all mobile, in-vehicle, and roadside devices are seamlessly interoperable. Like earlier planning documents, this one positions automakers and local governments as key players in rolling out V2X technology. While USDOT will act as a facilitator, the agency contends it is “ultimately it is up to States, tribal government, and local government that own and operate roadway systems to plan, design, construct, operate, and maintain V2X deployments” (p. 10). In this spirit, the plan identifies major actions that state and local governments and public agencies can pursue: 

• Update investment and transportation plans to include V2X technologies
• Deploy and operate secure interoperable, cybersecure infrastructure-based V2X technologies and applications
  • Use federal seed funding to inform and test interoperability
  • Collaborate on message sets and standards for interoperability
  • Work with local emergency services, transit, school bus, and other public sector vehicle fleets to strengthen vehicle participation
  • Make sure interoperability is routinely considered in long-range plans issued by states and MPOs
  • Stay up to date on V2X developments by participating in national events

KYTC participates in the USDOT Joint Program Office CV2X Cohort and Interoperability Working Group. These collaborative groups focus on testing and validating tools and developing nationwide standards for interoperability.

3.1 Progress in Kentucky

Kentucky has several statutes (KRS) focused on CAV operations.

KRS 281.764 authorizes the operation of commercial vehicle platoons and defines conditions under which platooning operations may occur. Motor carriers wanting to operate a platoon must submit a written plan to the Department of Motor Vehicles and Kentucky State Police that describes how the platoon will function. Drivers who occupy the lead vehicle in a platoon must hold a valid commercial driver’s license and remain behind the wheel at all times. Additionally, vehicles must display a visible marking that alerts other drivers and law enforcement that they may be part of a platoon. The Department of Vehicle Regulation establishes administrative regulations and specifies what information should be included in platooning plans.   

Enacted in 2024, KRS 186.760 – 186.779 define the conditions under which fully autonomous AVs can operate on Kentucky’s state highways. AVs must:

• Be able to achieve a minimal risk condition if an ADS fails
• Comply with state traffic and motor vehicle safety laws and regulations unless KYTC issues an exemption
• Carry a manufacturer’s certification label indicating compliance with federal motor vehicle safety standards, including exemptions issued by the National Highway Traffic Safety Administration
• Be titled, registered, and insured in accordance with KRS 766 and 186.769

KRS 186.763 requires an individual to submit a law enforcement interaction plan to KYTC before operating an AV on state highways. This plan must describe methods for communicating with fleet support specialists who are available while the vehicle is operating, how to safely remove the vehicle from a roadway, ways for determining if an ADS is engaged, and other information relevant to hazardous conditions or public safety risks posed by its operations.

KRS 186.776 designates KYTC as the responsible agency for implementing AV-related statutes and establishing administrative regulations relevant to AV operations.

4. Moving Forward with CAVs and V2X in Kentucky

KYTC has identified 14 strategic priorities that will guide its approach to CAVs and V2X. With both truck platooning and AV-enabling legislation on the books in Kentucky, the state can facilitate public and private stakeholders as they explore the CAV space, launch pilot projects, and establish new initiatives. As with the first iteration of this plan, the Cabinet will continue to emphasize the adoption of best practices and policies identified by USDOT, state transportation agencies, and national organizations.

Stay Informed and Engaged

Heeding USDOT’s recommendation to take a leading role in fostering CAV and V2X deployments, KYTC staff will keep up to date on advances in emerging vehicle technologies, funding opportunities, the status of pilot projects, and the latest trends in public-private partnerships which promote CAVs. Staff will participate in workshops and conferences focused on CAV and V2X technologies and strengthen the agency’s collaborative relationship with AASHTO, MAASTO, SASHTO, and other partner agencies. Building institutional knowledge and engaging stakeholders will help the Cabinet establish policies that are responsive to evolving CAV trends.

Locate Future Connected Corridors

Using its two connected corridor pilot projects as a springboard — KY 876/US 25 in Richmond and US 231 in Bowling Green — KYTC funded a planning study to evaluate the suitability of Interstate 64 between Lexington and Louisville as a CAV corridor. Once the study is finalized, the Cabinet will have a stronger understanding of how to identify, develop, and maintain CAV corridors. Using information and lessons learned from this study, KYTC will identify other corridors where the installation of connected technologies and signage or marking enhancements can yield the highest returns on investment.

Assist Legislators and Policymakers

Kentucky’s legislation permitting AV operations on state highways removed a major barrier to future CAV testing and deployment. While this represents an important milestone, it is merely the first step on the way to widespread deployment of CAVs. Many legislators and policymakers still have questions about CAVs and their future prospects in Kentucky. For example, where are CAV corridors likely to be located? KYTC retains its commitment to develop informative educational materials that legislators and policymakers can use to deepen their understanding of CAVs and V2X. To develop guidance, the Cabinet will continue to pursue research and pilot opportunities as well as lean on publications from national organizations (e.g., AAMVA, GHSA, AASHTO), newly developed industry tools, as well as USDOT and other state transportation agencies and localities.

Embrace Interoperable Connectivity

Consistent with USDOT’s call for CAV and V2X systems to achieve seamless interoperability, KYTC will prioritize pilot projects and long-term solutions that ensure mobile, in-vehicle, and roadside devices operate securely and efficiently. The Cabinet will work with public (e.g., transportation agencies across multiple levels of government) and private (e.g., automakers, non-governmental organizations) stakeholders on issues related to interoperability so that disparate CAV and V2X technologies function as a single system. Should KYTC purchase V2X infrastructure directly, it will acquire equipment and technologies that reflect this commitment to interoperability so they remain operational well into the future.

Engage Other State-Level Agencies and Additional External Stakeholders

KYTC established an internal stakeholder group in 2018 that meets regularly, develops recommendations related to CAV and V2X, and presents ideas to Cabinet leadership. Within one year, KYTC will establish a CAV/V2X Advisory Council that includes governmental agencies, quasi-jurisdictions, and private industry throughout Kentucky so the state can develop a clear and consistent statewide approach to emerging vehicle technologies. Council members will oversee work within their respective agencies and provide regular updates on progress and planned activities. Key priorities for the council will be facilitating cross-agency coordination, mapping out standards for workforce training so public and private stakeholders become proficient in workflows relevant to CAVs and V2X, and conducting visioning exercises with a range of industry groups to understand how they are approaching emerging vehicle technologies to determine how KYTC and the state more broadly can aid their efforts.

Establish CAV and V2X Policies that Foster Safe Mobility for All Roadway Users

KRS 186.776 assigns KYTC sole responsibility for developing administrative regulations related to AVs and ADSs. To fulfill this responsibility, the Cabinet will partner USDOT, state transportation agencies, and key organizations (e.g., GHSA, AAMVA, AAA, NCHRP) to develop administrative regulations and best practices related to CAVs and V2X. All policies and regulations promulgated by KYTC will adhere to state and federal laws. Coordinating with other stakeholders is critical for building out CAV/V2X infrastructure in a manner that operates seamlessly across jurisdictional boundaries so that motorists experience the benefits of emerging vehicle technologies irrespective of the roads they travel.

Target Economical Investments that Confer Universal Benefits

The cost of installing and maintaining RSUs, radar, and various sensors can be high. With USDOT placing the responsibility for CAV implementation with state and local agencies, CAV-related projects will compete with conventional roadway projects (e.g., widening, resurfacing) for scarce funding. Public-private partnerships (P3), such as those pursued by the Michigan DOT and Cavnue, may be a long-term option for building out connected infrastructure. While exploration of P3s is ongoing, KYTC will move the ball forward by investing in capital and maintenance activities that benefit all roadway users and vehicle types, including CAVs. Examples include high-quality striping, clear signage, and Complete Streets. The Cabinet will also work to roll out connected infrastructure technologies so roadway users can build their knowledge of how they operate and what benefits they deliver. Some examples include connected pedestrian crossings, direct notifications of pedestrian signal activation, and pedestrian sensors.

Continue Contributions to USDOT Work Zone Data Exchange

Kentucky participates in the USDOT’s Work Zone Data Exchange (WZDx) program. WZDx feeds publish work zone locations and activities that can be used by third parties, including original equipment manufacturers (OEMs) and navigation applications. Having a common data feed built on a single specification is essential for conveying critical information to motorists as they travel between jurisdictions. KYTC will continue to publish its WZDx feed and collaborate with USDOT, state transportation agencies, and industry stakeholders to improve the quality, delivery, and consistency of work zone data.

Pilot a Fully Autonomous Shuttle

Transportation agencies (e.g., Minnesota DOT, North Carolina DOT), cities (e.g., Detroit), and universities around the country have piloted fully autonomous low-speed shuttles to evaluate their performance and identify potential use cases. These shuttles are still in their infancy, and further research and development is necessary to improve their reliability and attract riders who may be skeptical of their safety. With recent legislation clearing the way for AVs on state highways, Kentucky would benefit from working with shuttle manufacturers to test a shuttle in the state. KYTC can coordinate this effort and work with transit agencies and local municipalities to identify pilot opportunities.

Assist Local Governments with CAV/V2X Initiatives

Cities, counties, MPOs, and other localities around Kentucky may want to pursue CAV initiatives. The Louisville Metro Government, for example, released an Autonomous Vehicle Playbook that lays out five principles for integrating considerations about AVs into infrastructure planning and development. To help local communities kickstart their CAV and V2X initiatives, KYTC will offer guidance and resources and facilitate dialogue, peer exchanges, and planning meetings.

Identify Potential CAV Testing Grounds

USDOT records where ADS developers are evaluating AVs. Most people are familiar with large-scale assessments done by companies such as Waymo (e.g., in Phoenix and San Francisco). But no testing is currently happening in Kentucky. With three automakers and 525 auto parts suppliers having a large footprint in the state, Kentucky is well positioned to attract firms to conduct CAV pilot studies. The state’s expansive transportation network, which has everything from highly trafficked urban streets to winding two-lane roads through mountainous terrain, provide fertile ground for developers to test the mettle of their ADSs and evaluate how well they perform outside well-controlled environments. KYTC will spearhead efforts to bring new testing to the state by identifying corridors and street networks that would be particularly conducive to CAV deployment.

Lead Statewide Educational Outreach

Most members of the public do not have good knowledge of V2X, ADAS, and ADS because there has been no coordinated effort to explain in clear language how CAVs work. Because of this, some people are understandably wary of CAVs. Safety is often the foremost concern among skeptics of vehicle connectivity and automation. KYTC wants to help people learn about these technologies by developing educational materials that clearly describe CAV capabilities and the responsibilities of human drivers. Through education and outreach, KYTC can play its part to shore up the safety of transportation network operations as mixed vehicle fleets become the norm.

Amplify the Positive Impacts of CAVs Through Planning and Collaboration

KYTC’s future planning and project development will incorporate strategies to amplify the positive impacts of CAVs. Uncertainty remains about how CAVs and V2X will influence the planning, operation, and construction of transportation networks, in part due to the significant funding required to build out connected infrastructure. In the face of this uncertainty, the Cabinet be proactive by:

• Updating KYTC’s long-range planning to account CAV impacts.
• Using scenario planning as other states have done to maintain responsiveness to technological developments.
• Tracking advances in cooperative vehicle highway systems, which can improve decision making about projects and enhance system operations and incident response.

Strengthen Implementation of the Safe System Approach through CAV and V2X Technologies

KYTC has emerged as a leader in applying the Safe System Approach (SSA). The SSA defines elements of safe transportation systems as well as principles for improving system safety. One guiding principle of the SSA is that roadway users make mistakes. As such, transportation agencies must be proactive — not reactive — in how they address roadway safety. Because connected vehicle and infrastructure technologies will play an important role in helping motorists avoid mistakes that have the gravest consequences, in the years ahead the Cabinet will explore how CAV technologies can bolster implementation of the SSA. Through the development of novel design solutions that deliver benefits to all roadway users and forging partnerships with key public and industry stakeholders, KYTC will harness the power of emerging vehicle technologies to eliminate serious crashes.

5. Moving Forward

KYTC’s updated 2024 Operational Plan Goal to Deliver Economic Opportunities and Enhance Quality of Life prioritizes investing in improvements across all modes of transportation. A key strategic tactic to achieve these goals is enhancing Kentucky ‘s travel network by working to advance CAV communications.

Kentucky is poised to build on its rich history of supporting technological innovations in the transportation sector. KYTC, as its long-term partnerships with HERE and Waze as well as its leadership in intelligent transportation systems demonstrate, has the knowledge to push forward with new technologies that help motorists and users of all types and abilities safely navigate the state’s transportation networks.

KYTC plans to update its CAV strategy every 1 – 2 years. Updated versions will define new strategies and report on progress made to date. Work focused on CAVs and V2X is helping the Cabinet is carry out its mission of building a safe, efficient, environmentally sound and fiscally responsible transportation system that delivers economic opportunity and quality of life for Kentuckians.