Digital Infrastructure
Strategy Report
Shaping the future of transportation in the United States

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

Contents
Foreword02
Executive summary

1

2

3

4

03

Defining digital infrastructure

04

Digital infrastructure in the context of use cases

04

Identifying and collaborating with key stakeholders

04

Taking decisive action

04

Introduction: a transportation system in flux

05

1.1

Where are we now?

05

1.2

What are the goals & needs?

05

1.3

ITS America’s vision

06

1.4

This Digital Infrastructure Report

06

What is digital infrastructure?

07

2.1

07

Defining digital infrastructure

Evaluating through the lens of use cases

09

3.1

09

Ten use cases

3.2	Use cases as the bedrock for discussion 

10

3.3	Actionable insights from two key use cases

14

Stakeholder participation and collaboration

24

4.1

25

Stakeholder engagement strategy

5Turning strategy into action

27

6

Next steps

28

7Conclusion

29

01© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

Foreword
The Intelligent Transportation Society of America (ITS
America) is grateful for the opportunity to publish thisreport based on the work of our Digital Infrastructure
Working Group in collaboration with Cambridge
Consultants. ITS America is the only organization in the
country that represents all sectors of the transportationindustry – public, private, academic, and non-profit –to advance transportation technology. Our membership
includes state and city departments of transportation,transit agencies, metropolitan planning organizations,
automotive manufacturers, technology companies,
engineering firms, automotive suppliers, insurancecompanies, and research and academic universities.
Our vision is one of a better future transformed bytransportation technology and innovation. Safer. Greener.
Smarter. For all. Our work accelerates the deployment oftechnology that saves lives, promotes sustainability, andadvances more equitable transportation. We believe that
digital infrastructure deployment is an essential componentof our vision, and that connectivity, automation, data, code,and software will allow the industry to manage and operate
our nation’s physical assets more safely and effectively. It is
our hope that this report will encourage such a deployment,
and we look forward to working with USDOT to realize thepotential that digital infrastructure has to bring about thenext generation of transportation infrastructure.

Cambridge Consultants (CC) is delighted to havecontributed to this timely report, and proud to havemade that contribution in collaboration with ITS America,
the leading advocate for the digital transformationof transportation. CC is a very particular kind oftechnology consultancy in that our outlook is broad andmultidimensional. We don’t carry a torch for any one
solution, rather our focus is on outcomes – specifically thebusiness, economic and societal value of breakthroughdigital transformation. This approach, infused with our
track record in creating, developing and deploying originaltechnology innovation, dovetails neatly with the bold,modernising vision of ITS America. Our collective andagreed hope is that this report will help pave the way
towards safer, greener, smarter environments for everyone.
We hope you find it valuable.

02© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

Executive summary
The role of technology in transportation has grown exponentially,and digital infrastructure (DI) innovations have the potential toradically improve our nation’s transportation system. The US
Department of Transportation (USDOT) urgently needs to devise
a comprehensive digital infrastructure strategy to guide andsupport the deployment of these technologies. This strategy should
leverage digital infrastructure’s ability to support the broader
USDOT objectives, which include enhancing safety, boosting
economic value, addressing climate change, and ensuring equity
in all transportation modes. However, formulating a strategy inthe transportation sector is complex. It involves coordinating witha vast array of stakeholders, from transportation departments
to technology providers and the general public, each having
distinct interests and capabilities. Additionally, the rapidly evolving
technological landscape, marked by progress in areas such as
AI, IoT, 5G, and blockchain, requires a detailed grasp of theirapplications and implications. Different regulatory frameworks
across states and transportation types adds further challenge
to the integration of digital technology and compliance.
These factors both complicate the formation of a clear digital
infrastructure strategy and underscore the importance ofFederal leadership in the deployment of these solutions.

03© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

In the face of this complex ecosystem, this report aims to facilitate the discussion on digital infrastructure and offers
recommendations for defining and implementing a national digital infrastructure strategy. These recommendations areframed by examining definitions of digital infrastructure, assessing digital infrastructure in the context of specific use cases,
pinpointing key stakeholders, and suggesting concrete actions for USDOT to implement. It is our hope that this report serves
as a useful resource for USDOT as it conducts the important work of leading the way for a nationwide deployment of digital
infrastructure for the benefit of all road users.

Defining digital infrastructure

Taking decisive action

Defining digital infrastructure is a crucial step for USDOT.
Establishing a common definition allows a unified vision andensures all involved parties are aligned in their objectives
and efforts. A consensus around digital infrastructure would
encompass critical technological advancements andinnovations, allowing for strategic planning and adaptation.
Equally vital is the establishment of an agreed-uponreference architecture and relevant standards, ensuringconsistency, interoperability, and a benchmark for quality.
By identifying key stakeholders within this definition, USDOT
can ensure inclusivity and collaborative decision-making.
Lastly, by setting clear priorities and goals, USDOT cancreate a roadmap that guides efforts and investments,
ensuring optimal outcomes for the nation’s transportationneeds. Without a shared understanding of digital
infrastructure, the risk of fragmented approaches andmissed opportunities increases.

The immediate next steps that USDOT should take are
the following: Establishing a realistic and achievable vision
USDOT should define a national digital infrastructure
vision that consists of ambitious, yet achievable andmeasurable goals. In doing so, it will help prevent siloed
work and ensure that everyone is working towards acommon end vision. We expect this vision will reflect
key USDOT priorities, including the National Roadway
Safety Strategy goal of approaching Vision Zero,1
USDOT’s 2022-2026 Research, Development, andTechnology Strategic Plan,2 and USDOT’s 2022-2026
Strategic Plan more broadly. 3
 Establish a roadmap with defined milestones
This roadmap should guide the actions needed for
scaling implementation projects, proof-of-concept
initiatives, and use case developments and include
realistic milestones. These milestones should clearly
define what is to be achieved, and there should be amechanism in place for quantitatively assessing whether
the milestones have been reached.

 igital infrastructure in the context ofD
use cases
USDOT should identify and continue to foster innovative
initiatives through industry use cases with the most significant
impact. This will help prioritize actions and align strategy withclear and measurable outcomes. These initiatives should bedesigned to align with defined milestones and an end vision,
to avoid projects operating in silos. In parallel, there is a needto agree and define the data sharing strategy within thereference architecture. A fully defined architecture will serve
as a comprehensive blueprint for implementing key actions
derived from the relevant use cases.

The rise of technology in transportation necessitates a welldefined approach to digital infrastructure. Decisions madeby USDOT today will influence the transportation sector’s
future. By utilizing the recommendations in this report andcollaborating with stakeholders, a future emphasizing
safety, equity, and sustainability can be achieved. Uniting
under a shared vision and acting decisively will pave theway for a brighter transportation future.

Identifying and collaborating with key
stakeholders
In this complex transportation ecosystem, it is crucial for
USDOT to engage with all stakeholders and understandwhose needs must be satisfied, compared to those whoshould be actively engaged, monitored, or kept informed.
For instance, State DOTs represent key stakeholders in thisprocess and require active engagement, given their direct
involvement in spearheading specific implementation
projects. Also, the voice of road users, both public andprivate, should be brought more fully into the conversationand involved in policymaking.

1

https://www.transportation.gov/sites/dot.gov/files/2022-02/USDOT-National-Roadway-Safety-Strategy.pdf

2 https://www.transportation.gov/sites/dot.gov/files/2023-01/USDOT%20RDT%20Strategic%20Plan%20FY22-26_010523_508.pdf
3 https://www.transportation.gov/sites/dot.gov/files/2022-04/US_DOT_FY2022-26_Strategic_Plan.pdf

04© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

1 Introduction: a transportation system in flux
1.1 Where are we now?

1.2 What are the goals & needs?

The US transportation system is on the brink of urgent
transformation, moving to embrace a much more digitallyorientated architecture of sensors, data, software, andconnected systems. This evolution has been driven bymajor economic and societal trends as well as a rapidly
evolving technology landscape that offers significant
advantages if implemented. These inevitably pose a seriesof challenges to transportation – primarily concerning
safety, mobility, sustainability, and operational efficiency of
the transportation network.

The USDOT’s RD&T Strategic Plan 4 and goals focus primarilyon safety, economy, sustainability, equity, and driving
transformation and organizational excellence: Safety: Make our transportation system safer for
all people
 Economic Strength and Global Competitiveness:
Grow an inclusive and sustainable economy
 Equity: Support and engage people and communities
to promote safe, affordable, accessible, and multimodal
access to opportunities and services while reducing
transportation-related disparities, adverse community
impacts, and health effects

In the US alone, NHTSA estimates that 42,795 people diedin motor vehicle traffic crashes in 2022. The US Energy
Information Administration (EIA) estimates that in 2022,
motor gasoline and diesel fuel consumption in the US
transportation sector resulted in a total of about 1,476 MMmt
of CO2. There is much to be improved in increasing the safety,
efficiency, and effectiveness of the transportation system.
That said, transportation is being driven by advances andrapid deployments in a broad and connected set of digitallyenabled technologies such as edge computing systems,
artificial intelligence (AI), accelerated wireless connectivity,
mobility-as-a-service, and new forms of energy.

 Climate and Sustainability: Substantially reducegreenhouse gas emissions and transportation-related
pollution and build more resilient and sustainabletransportation systems to benefit and protect communities
 Transformation: Invest in purpose-driven research andinnovation to meet the challenge of the present andmodernize a transportation system of the future thatserves everyone today and in decades to comeRegardless of the complexity of evolving transportationenterprise, data sharing protocols, technology capability
gaps and ecosystem collaboration, industry leadersrecognize that the future of transportation requires a morebalanced approach to supporting infrastructure, in which
the physical assets will merge with digital layers into a
unified solution.

 Organizational Excellence: Establish policies,
processes and an inclusive and innovative culture toeffectively serve communities and responsibly steward
the public’s resources
ITS America’s digital infrastructure vision aims to support
these goals, by ensuring that digital infrastructure allows us
to provide, in real time, valuable information to help makebetter decisions towards a safer, resilient, sustainable, andequitable future.

Successful implementation of this digital layer requires
an overarching vision: a thoughtful and in-depth strategy
and planning approach that all industry stakeholders in
the public and private sector will rally behind. It must be
clearly communicated and demonstrate value that supports
industry business models and public infrastructure.

“The US transportation system is on the brink of urgent transformation, moving toembrace a much more digitally orientated architecture of sensors, data, software,and connected systems”

4 https://www.transportation.gov/sites/dot.gov/files/2023-01/USDOT%20RDT%20Strategic%20Plan%20FY22-26_010523_508.pdf

05© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

1.3 ITS America’s vision

1.4 This Digital Infrastructure Report

ITS America set out an initial vision to drive the industry
forward and accelerate digital infrastructure deployments.
As the vision states, “The industry will use digital infrastructure,
data, information and insights to advance our Vision Zerogoals to reduce fatalities, to progress US Net Zero emissions
reduction goals, to grow the US economy by providing
market certainty for industry and provide underserved
communities more affordable, accessible, and reliable
access to transportation.”

Since the creation of the ITS America Digital Infrastructure
Working Group, for the first time ever, the USDOT has now
included ‘digital infrastructure’ in its Research, Development
and Technology Strategic Plan, 5 noting:“The transportation system of the future will integrate digitaltechnologies and infrastructure to support safe, reliable andconvenient multimodal travel.”
The ITS America Digital Infrastructure Working Group has
identified key areas that are crucial to achieving thisstrategic plan. This report will elaborate on each of theseareas, namely:

To achieve this vision, digital infrastructure requires afundamental shift towards a more interconnected anddata-driven transportation ecosystem that better meetsthe needs of all stakeholders. ITS America is working withgovernment, public safety, private industry, researchers
and nonprofits to create a uniform, interoperable
structure, including guidance and best practices, usecases, stakeholder roles and responsibilities, performancemeasures, and guidance for a reference architecture.

 Section 2: What is digital infrastructure?
Define digital infrastructure and identify the primary
components that make up digital infrastructure Section 3: Evaluating through the lens of use cases
Identify and prioritize use cases that will set thefoundation for digital infrastructure and assist USDOT inunderstanding where it should direct resource allocation,
time, and expertise

The industry is looking forward to re-energizing the concept
of infrastructure with emerging technologies and exciting,innovative solutions that also draw in a new generation.
Hence, ITS America and their member organizations havetaken various steps since 2022 towards a more interconnected
future through forums, workshops, and strategy sessions to
help build the next generation of infrastructure.

 Section 4: Stakeholder participation and collaboration
Architect a comprehensive and inclusive stakeholder map
with their roles, responsibilities, and inter-dependencies
 Section 5: Turning strategy into action
Key actions for USDOT to begin shaping a national digital
infrastructure strategy

Last year, ITS America started a national campaign
specifically on digital infrastructure and launched a working
group across industries and sectors to bring together key
voices from leading technologists, engineers, planners,
public agencies, researchers, and community nonprofits.
The goal of this work is to advocate for technology
investment by defining what ‘digital infrastructure’ means
to us, crafting the transportation technology industry’s
vision for the future, and developing a strategy for themodernization of the US transportation system. This working
group will also work together with USDOT to help support
their leadership and vision for digital transformation.

2022

Jan

FHWA kicks off
Roadway Digital
Infrastructure
Strategy
Feb

ITSA makes DI a
top goal in 2022
to advocate that
USDOT focus
includes physicalinfrastructure

Mar

Apr

The insights and guidance in this report have been drawn
from a large corpus of in-depth ITS America working groupmeetings, forums, and workshops – particularly from theApril 2023 Digital Infrastructure workshop, held during theannual ITS America conference. This serves as a summary
record of information from all these discussions which haveincluded hundreds of voices representing DOTs, MPOs, OEMs,
public and private sector entities, and more.

ITSA Digital
Infrastructure
Forum

May

Jun

CoMotion LA
DigitalInfrastructure
Keynote
Jul

Aug

Sep

Oct

Nov

TRB Annual
Meeting Digital
Infrastructure
Workshop
Dec

Jan

Feb

2023
TRB ARTS22
DigitalInfrastructure
Workshop

ITS World
Congress
DigitalInfrastructure

5 https://www.transportation.gov/sites/dot.gov/files/2023-01/USDOT%20RDT%20Strategic%20Plan%20FY22-26_010523_508.pdf

06© Cambridge Consultants & ITS America 2023

ITS America formallykicks off Digital
Infrastructure
Working Group

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

2 What is digital infrastructure?
2.1 Defining digital infrastructure“Digital infrastructure is the public and private technology
assets that create, exchange or use data to provide
information and insights to advance transportation safety,
sustainability, equity, access and opportunity. Digital
infrastructure is the data, communications systems, servers,routers, hardware, sensors, software applications, andcomputing to share information through data exchanges
and platforms. Digital infrastructure includes the transfer,storage and processing of digital information sharedthrough communications networks across users, companies,
devices and public agencies”

There is no dictionary definition of digital infrastructure;
however, through wide-ranging stakeholder discussions
facilitated by ITS America, there has been a growing
consensus towards a working definition which has beenused to underpin some of the previous ITS America work:

This definition is still under development; however, there are key components that must be considered when formulating aformal definition of digital infrastructure, with a holistic view of what digital infrastructure encompasses:

Digital Infrastructure
Technology & innovation
At its core, digital infrastructure
is composed of technologicalsystems and processes.
Incorporating the aspect of‘Technology & Innovation’ inthe definition ensures thatit remains adaptive andcontemporary, considering notjust existing technologies but
also innovations that will shape
the future of the infrastructure.
Without a constant eye on
technology and innovation,
the infrastructure could
become obsolete.

Standards and referencearchitectureStandards serve as theguidelines and norms thatgovern the construction,
implementation, andinteroperability of digital
infrastructure components.
They ensure a level of quality,
reliability, and safety in digital
infrastructure systems.
Without incorporating
standards, the definition ofdigital infrastructure would
lack the structural integrity
needed for scalable andconsistent performance.

1. Connectivity: Enhance and expand 5G connectivity across transportation
networks, including highways, railways, airports, and ports. This will ensure reliable
and high-speed internet access, enabling connected vehicle technologies, realtime data exchange, and communication with infrastructure.
2. Dynamic transportation systems: Promote the deployment of the next generationof Intelligent Transportation Systems (ITS) technologies, such as intelligent
multimodal traffic management systems, smart traffic signals, and vehicle-toeverything (V2X) communication and incorporating advanced multimodal traffic
performance. These systems can improve traffic flow, enhance safety, and reduce
congestion by leveraging real-time data and automation.
3. Continuously emerging technologies: Embrace the ever-emerging technologies
such as connected and autonomous vehicles (CAVs), drones, and electric vehicles(EVs). Develop policies, regulations, and infrastructure to accommodate thesetechnologies and their associated infrastructure needs, including charging
stations for EVs and dedicated drone landing zones.
1. Data sharing and integration: Establish protocols and standards for data
sharing among transportation stakeholders, including government agencies,
private companies, and researchers. Enable seamless integration and analysis oftransportation data from various sources to support informed decision-making
and foster innovation.
2. Cybersecurity: Develop robust cybersecurity measures to protect criticaltransportation infrastructure and systems from cyber threats. This should include
implementing secure communication protocols, encryption, intrusion detection
systems, and regular security audits to safeguard against potential vulnerabilities.
3. Interoperability and standardization: Promote interoperability andstandardization of digital systems and technologies within the transportation
ecosystem. Encourage the adoption of common protocols, data formats, andcommunication standards to enable seamless integration and compatibility
across different modes of transportation.

07© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

Digital Infrastructure
Stakeholders
Digital Infrastructure doesn’t
exist in a vacuum; various
parties like governments,
businesses, and consumers
interact with and rely on it.
Including ‘Stakeholders’ inthe definition acknowledges
the range of interests andrequirements that the digital
infrastructure must serve. It is
the stakeholder’s needs andexpectations that ultimately
define the value and efficacyof the DI.

Priorities & goals
Every digital infrastructure
initiative is driven by a setof priorities and goals,
whether it is enhancing
safety, increasing efficiency,
improving accessibility, or
ensuring data security. These
aims help to guide the design,
deployment, and governanceof the DI. Including ‘Priorities &Goals’ in the definition helps
ensure that the infrastructure
is purpose-driven and meetsspecific objectives, making it
more than just a collection oftechnologies.

1. Public-private partnerships: Foster collaboration between the public andprivate sectors to leverage expertise and resources. Encourage partnerships
with technology companies, telecommunications providers, and infrastructuredevelopers to accelerate the deployment of digital infrastructure and ensure
efficient implementation.
2. User-centric solutions: Prioritize user needs and experiences when designingand implementing digital infrastructure initiatives. Consider the perspectivesof commuters, freight operators, public transit riders, and other transportation
users to create user-centric solutions that improve accessibility, efficiency,
and overall satisfaction.

1. Future-proofing: Anticipate future technological advancements and design thedigital infrastructure strategy with scalability and adaptability in mind. Accountfor emerging technologies, potential shifts in mobility patterns, and changing user
demands to build a flexible and future-proofed digital infrastructure framework.
2. Sustainability and environmental: Incorporate sustainability principles into
the digital infrastructure strategy. Encourage the use of clean energy sources
for powering digital infrastructure, support electric vehicle adoption, andexplore innovative approaches to reduce transportation-related emissions andenvironmental impact.
3. Safety: Define the full vision for safety. While reducing fatalities and crashes is
an important aspect of safety, a more complete vision of safety for all road users
is needed.
4. Mobility and equity: Define key objectives that will ensure a transportation
system that enhances mobility, is accessible, and includes under-represented
communities.

“Every digital infrastructure initiative is driven by a set of priorities
and goals, whether it is enhancing safety, increasing efficiency, improving
accessibility, or ensuring data security”

08© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

3 Evaluating through the lens of use cases
3.1 Ten use cases

1. Traffic signal integration
2. Connected vehicle data

In April 2023, ITS America’s Digital Infrastructure Working
Group convened to identify and prioritize ten critical digital
infrastructure use cases to meet safety, equity, economic
strength, and climate objectives. These use cases, whichwere prioritized with input from conversations with USDOT
staff, represent an initial blueprint for demonstrating digital
infrastructure capabilities within our transportation system.
They do not represent an exhaustive list of the possible use
cases that digital infrastructure could support, but rather astarting point from which USDOT can measure the potential
and progress of digital infrastructure deployment whileachieving meaningful results for the traveling public.
The suggested use cases are as follows:

3. Cybersecure systems
4. AAM
5. Interoperability
6. Curb data
7. EV charging stations
8. Sharing weather data
9. Digital policy
10. Reliable transit

09© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

3.2	Use cases as the bedrock fordiscussion

These use cases are driven by:
 Ensuring the safety of all road users, reducing traffic
fatalities and decreasing emergency response times

The April 2023 Digital Infrastructure workshop, held during
the annual ITS America conference, attracted a diverse
group of stakeholders, including USDOT representatives,
State DOTs, MPOs, OEMs, and private sector entities. The
primary purpose of the workshop was to gather expertiseand knowledge from these participants to contribute to thedevelopment of a national digital infrastructure strategy.

 Improving safety, which can reduce healthcare costs,
insurance premiums, and other economic costs
associated with accidents
 Increasing the efficiency in infrastructure planning,
operations, and investment decisions, ensuring thatroad networks are designed and maintained to meet
USDOT’s strategic goals

During the workshop, over 300 attendees were present,
including representatives from USDOT, State DOTs, City
DOTs, technology and infrastructure providers, academia
and standards bodies. These attendees were provided withdetailed explanations of goals associated with the 10 use
cases outlined in 3.1 that covered a wide range of topics
and industry challenges. This information served as a focal
point for their discussions, enabling participants to identify
key stakeholders, determine necessary actions andgenerate valuable insights about the potential outcomesof success.

 Preventing accidents caused by cyberattacks on
trains, planes, vehicle sensors, software, andcommunication links
 Transporting goods faster than traditional methods,
leading to increased productivity and lower costs
 Reducing congestion through efficient, data-driven
systems

Among the different use cases, device deployment and data
sharing emerged as the most significant common threads.
The participants saw the need for common standards,
security, and privacy across the different use cases. The
strategic deployment of assets, as well as their protection
and maintenance, were common discussion points too.
Most importantly, there was a unanimous agreementon the immediate need for a coherent vision and swift
implementation of the identified actions. The frequent callthroughout the workshop was clear: USDOT must take thelead without delay.

 Reducing carbon emissions by using clean energy
alternatives for vehicle operations
 Encouraging and incentivizing new businessmodels through more open data, enabling acompetitive marketplace Speeding up deployment to realize all benefits sooner
 Assuring transportation equity and justice across all
community groups (race, income, age, and ability)

Focusing on a combination of these use case challenges
will assist USDOT in understanding where it should direct
resource allocation, time, and expertise. The unique insights
associated with each use case will also help in defining
and establishing achievable milestones, identifying key
stakeholders, and also in prioritizing the scaling of the mostimpactful use cases.
The key takeaways associated with each use case have also
been summarized on the following pages. These takeaways will
help shape the broader objective of informing and measuring
the success of a national digital infrastructure strategy.

“there was a unanimous agreementon the immediate need for a coherent
vision and swift implementation of theidentified actions”

10© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

3.2.1 Summary of workshop use cases
Use cases

Key drivers

Key workshop takeaways

Traffic signal
integration

 Allow authenticated emergency/transit/
freight vehicles to pre-empt signals

 Need for systematic implementation oftechnology standards, interoperable
communication, and data systems

 Enable connected vehicles to drive
more safely and prevent accidents(e.g. CAV slows if signal will turn yellow)
or plan faster routes
 Ensure safer pedestrian road use
 Help improve emergency response times(e.g. by prioritizing emergency vehicles) Educate and upskill the population on newtechnologies, and secure funding beyond
pilot projects, in order to successfully
modernize infrastructure, enhance public
engagement, and showcase benefits suchas reduced traffic accidents

 Improve awkward transport situations(e.g. transit vehicle drop-offs)
Connected vehicle
data (safety)

 Provide real-time traffic updates,
allowing drivers to make more informed
decisions about their route and avoid
potential hazards

 There is need for a strategic framework thataligns technology with safety objectives
and advocates for robust standards fordata exchanges

 Improve emergency response times by
providing more accurate information about
the location and severity of accidents andother incidents

 Promote stakeholder collaborationand foster a shift in mindset to value
data exchanges

 Inform infrastructure planning andinvestment decisions, ensuring that road
networks are designed and maintainedwith safety in mind
Connected vehicle
data (economy)

 Reduce travel times and costs,
leading to increased productivity andeconomic growth Sharing connected vehicle data cancreate new business opportunities forprivate companies Improve safety, which can reduce
healthcare costs, insurance premiums,
and other economic costs associatedwith accidents
 Inform infrastructure planning andinvestment decisions, ensuring that
resources are allocated efficiently
and effectively

Cybersecuresystems

 Digital twin technologies to evaluate thepotential impacts and benefits of dataexchanges on the ecosystem and optimize
decision-making processes Need for establishing national standards
for digital roadway data
 Agree and set up privacy policies to ensure
OEM and customer trust Use data to create new economic
opportunities
 Foster OEM data sharing practices
and continuous collaboration among
stakeholders
 Prioritize infrastructure maintenance andupgrades in parallel Preventing accidents caused bycyberattacks on vehicle sensors, softwareand communication links

 Need for an encompassing national
cybersecurity strategy and related
standards

 Faster and coordinated cyberemergency response from threat detection
and monitoring Integrate cyber experts from project
inception

 Giving commerce, the public sector, andusers confidence that their data/identities
are protected Cyber-secured access and authorization
for safety audit, incident analysis, andsafety related monitoring Develop compliance frameworks
 Develop a funding mechanism forincentivizing cybersecurity compliance Address liability and accountability
concerns

11© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

Use cases

Key drivers

Key workshop takeaways

Advanced air
mobility Efficiencies in moving people and goodsby sharing more data between air andground systems

 Need to establish a skilled workforce,robust safety and communication
systems, clear stakeholder roles, anduniform regulations across jurisdictions foradvanced air mobility

 Transport goods faster than traditional
methods, leading to increased productivity
and lower costs
 Reduced congestion and improved mobility
 Autonomous systems to be built withsafeties and redundancies which help
prevent accidents and reliable deliveryof goods

 AAM needs to target economic
growth, zero accidents, time efficiency,
seamless integration with existing
infrastructure, equitable access, andensure cost-benefit balance Help reduce carbon emissions
by using electric or hybrid-electric
propulsion systems
Interoperability New business models due to more open
data enables competitive marketplace Speeds up deployment (realizes all benefits
sooner) Avoiding a ‘patchwork’ set of features andunknown behaviors of digital infrastructure
systems
 Encourages consistency/qualityof data, which has benefits for future
app ecosystem

Curb data Improved parking access and space freed
up for greenery Reduce idling time, need for double parking
or need to circle to find parking
 Speed to delivery accelerates and more
packages can be delivered in the sameamount of time Reduce emissions, improve resident safety
and equity, management of congestion Curb digital twins and live data enables
seamless coordination and booking ofspace between multiple user groups

EV charging
stations

 Reliable accessibility to charging stations
reduces range anxiety and incentivizes
switching to electric Data-informed insights about charging
station demand will enable more effective
infrastructure planning and policies
 Interconnected and interoperable charging
stations will support the coordinationof renewable energy sources to power
charging infrastructure Develop a standardized andinteroperable digital infrastructure,
adopting a holistic system approach,fostering trust and collaboration
among stakeholders and emphasizing
rigorous testing Interoperability to support the
deployment of collaborative Intelligent
Transportation Systems, a substantial
reduction in lives lost, and a widely
accepted standard communication
protocol Develop comprehensive standards fordata management and an accessible
digitized inventory Understand and optimize dynamic curb
management
 Success is reliant on clear strategies and
KPIs linked to sustainability goals, welldefined design solutions and businessmodels generating self-sustaining revenue
streams, and efficient procurement andfunding reform Ensure the logging and sharing of real-timedata for the maintenance of EV charging
stations, implementing standardizationfor ease of use, ensuring grid reliability
for station expansion and rethinking data
allocation for cybersecurity
 Success is to be indicated by grid capacity
expansion, integrated mapping of charging
stations, and increased EV charging
revenue driven by a larger install base andimproved reliability

12© Cambridge Consultants & ITS America 2023

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

Use cases

Key drivers

Key workshop takeaways

Sharing weather
data Promote stronger resiliency planningand mitigate impact of disasters andextreme weather Deploy localized weather stations,
implement a multimodal data integration
strategy, enhance weather prediction
models with AI, develop universal
applications for stakeholders, and increase
investment for these initiatives

 Enhance mobility and distribute services
equitably More efficient traffic rerouting, saving lives
and quickly responding to climate events
 Help travelers find safer routes
 Reduce traffic inefficiencies and thus
gas emissions
Digital policy

 Promotion of transportation equity andjustice across all community groups
 Ensuring that major investments in digital
integration and transformation align with
the needs and values of all communities inthe travel corridor
 Ensuring the benefits of digital
infrastructure investments are adequately
communicated out to various audienceswith varying degrees of digital literacy
 Ensuring all neighborhoods within acommunity are considered when changes
are made to the transportation network

Reliable transit

 Aim towards greater weather data density,
resource efficiency, disaster resilience,
reduction in weather-related incidents,
improved transportation service, andprediction model accuracy
 Champions or sponsors to carry out thevision and enable the adoption of thestrategy and standards that will enable
the realization of a digital policy
 There is need for collaboration between
stakeholders and definition of roles torealize the vision There is need for data-driven objectives
to drive accountability
 Incentivizing outcomes throughfocused funding Enable greater transportation equity byincome, age, and ability

 Develop a robust knowledge network
through incentivized data sharing Promote increased workforce participation

 Ensure multimodal trip integration
and accessible dynamic route
planning solutions, and diversify
information distribution

 Improve health by encouraging more
exercise in commute
 Increase commute efficiency by reducing
unknown delays between multimodaltransit sources Increase revenue to municipal areas
through increased ridership Provide access to critical community
services Aim towards improving trip efficiency
and safety, with success gauged by theestablishment of interoperable standards,
creation of inclusive digital payment
modes, KPIs tracking operational efficiency
and safety, and increased public data
availability for innovation

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3.3	Actionable insights from two key
use cases

Lead data standardization initiatives
Standardization ensures interoperability and efficiency
across the entire digital infrastructure. USDOT shouldtake the lead and work closely with existing national
standardization programs such as the NTCIP, as well aswith industry, academic, and stakeholder representatives,to develop standards for data exchange and integration.
To take advantage of existing cutting-edge systems,
increase modularity (for example to swap in future
wireless standards), and enable innovation withintechnology components, it may be important to focus on
standardization of data ingress and egress at the ‘systemof systems’ layer, rather than across the entire technology
stacks of all the underlying systems and associatedindustries. USDOT can adopt a crucial role in establishingand monitoring compliance with data standards among
all relevant stakeholders, and influencing the enforcement
regime that may be required to accelerate change.

There are several common threads among the ten use casesthat could serve as starting points for USDOT in shaping
the national digital infrastructure strategy. But to provide
a contextual understanding of some of these actions, twouse cases were selected for further in-depth analysis:
connected vehicle data and traffic signal integration.
Moreover, these two specific use cases address significant
challenges within the transportation sector and emerge as
key areas where prioritization is necessary. The exploration
will involve identifying obstacles to success and outlining
the necessary steps to mitigate them. And lastly, in order tounderstand how these use cases can be realized, the report
also explores the potential for a reference architecture
which uses a shared data layer.

3.3.1 Connected vehicle data

The benefits of standardizing need to be relentlessly
expressed in terms of stakeholder benefits and value within
the different use cases, but at the system level are broadly
expected to be:

Establishing an ecosystem where insights from connectedvehicles are optimally utilized to address safety andsystem efficiency requires a multifaceted approach. Key
actions include promoting stakeholder collaboration,
standardization, data privacy and security, infrastructuredevelopment and maintenance, as well as incentivizing bothdata sharing and data exchanges.

 Reduced overall cost across the ecosystem
 System level efficiencies and ‘seamlessness’ inmultimodal transport

Act as a neutral facilitator between stakeholders

 Increased innovation and competition(less ‘lock in’ at key technology layers)

A national committee or steering group, comprising
representatives from vehicle OEMs, cities, infrastructurecompanies, technology providers, public safety
organizations, data providers, and privacy experts should
be formed to capture the hugely diverse perspectives in this
sector. Moving forward, this group should act as a united
voice, representing all stakeholders. Regular meetings
should be held to discuss evolving needs, use cases,
standardization issues, and privacy concerns related todigital infrastructure.

 Increased physical safety, cyber safety, and moreconsistent equity
 Improved data access, control, quality, ownership,
and protections
 Data driven decision making, simulations, andpredictive analytics

A key challenge lies in managing a variety of perspectives
and interests, which can make reaching a consensus
difficult. Appointing a neutral facilitator, possibly a USDOT
representative, can ensure that all voices are heard.

 Improved transparency, accountability, andperformance metrics
 Improved visibility of sustainability performance andimpact of net zero policies

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Develop data privacy and security standards

Rapid advances in technology can make it difficult toestablish and maintain relevant, up-to-date standards.
In addition, resistance may arise from industry stakeholders
due to the perceived limitation on innovation and the
additional burdens of compliance. Implementing an
iterative process to update standards will help ensure their
ongoing relevance and allow them to benefit from private
sector innovation.

USDOT should develop comprehensive privacy and security
standards for the transportation sector, ensuring the public
is well informed about the measures taken to safeguard
their data. Similarly, solutions allowing commercialorganizations to protect confidential IP should be promoted
to enable their investment. These strategies will help bolster
public and commercial trust in digital infrastructure, further
driving its adoption.

There may be large sections of the system of systems where
standards are ‘de facto’ based on public or private sector
initiatives, momentum, and majority acceptance. However
there are others (for instance making sure data ingress informats with timeliness and quality that are useful in public
safety contexts, or managing overall digital security stance)
where public intervention is required.

Considering the lifespan of systems being commissioned
today, it is important to anticipate that quantum computing
may render current authentication and some encryption
standards obsolete. Therefore, close attention shouldbe paid to the post-quantum cryptographic standards
being selected by NIST and driven from the highest levelsof government (e.g., HR 7535 Quantum Cybersecurity
Preparedness Act). Particularly, the need for chips capableof specific digital signatures should be integrated into thephysical infrastructure layers now, facilitating a gradualtransition to post-quantum cryptography over many years.

Leverage simulation and modeling for infrastructuredevelopment and maintenanceThe development of a robust, interconnected digital
infrastructure is vital for the efficient functioning of thetransport sector. Promoting joint simulation and test
programs, where multiple operators benefit from shared
scenarios, should be prioritized. These initiatives could
act as an advantageous entry point for data sharing andfoster collaborative development, but they would require
nationally driven funding and direction.

Ensuring robust data privacy and security can be technicallychallenging, especially given the rise of increasingly
sophisticated cyber threats. Another significant challenge
is striking a balance between data collection and usage,and individual privacy rights. Data security technologies
can help, but the interfaces to specify, understand,and audit data usage can quickly become complex forenterprise IT and OT departments, let alone end usersof transport systems. Each component where data isprocessed or aggregated potentially creates a new set ofaccess control, and data ownership and liability issues tomanage. Strong technology leadership is required to keep
the systems manageable while maintaining data security
and assigning liability for breaches. Regular or automatedsecurity audits can help maintain ongoing effectiveness.
Furthermore, promoting systems that improve aggregation,
anonymization, and access control assurances will be
crucial to maintaining trust with the public, OEMs, andother commercial entities.

Subsequent to the development phase, adequate training
for maintenance is necessary, accompanied by anestablished framework for regular upkeep and updates.
The significant capital investment required for deployment,along with ongoing maintenance costs, present some of thebiggest challenges. To alleviate these financial pressures,
public-private partnerships, along with grants and funding
from other governmental organizations, can be explored as
potential solutions.
Moreover, joint simulation and test programs could playa significant role in optimizing resources and preventing
overengineering. For instance, employing more advanced
digital twin modeling in these programs could help technicaltesting of concepts, aid strategic deployment of devices,and support large-scale integration. This approach would
potentially reduce waste and lead to a more efficient andcost-effective system.

In developing safeguards for privacy and security,
there will likely be tradeoffs which will impact the datainteroperability as outlined in Section 7.1.2. This further
highlights the need for strong leadership to make timely
decisions about these tradeoffs.

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Build trust in data exchanges and ensure their adoption

3.3.2 Traffic signal integration

Naturally, OEMs will be reluctant to share data due toproprietary concerns. However, the development of stringent
and transparent guidelines about how and when the data
will be used – and ensuring these guidelines comply withlocal and international data protection and privacy laws –can provide reassurances to OEMs about data safety anduser privacy. The obligations, liabilities, and responsibilities
that data sharing operators hold should be agreed from the
beginning and be legally binding. Furthermore, it is crucial
to establish and enforce penalties for the misuse of shareddata to uphold trust. While many entities are considering
how to implement data sharing systems that give better
inbuilt guarantees on protecting confidential IP, there isno de facto solution yet – USDOT has the opportunity to
be a pioneer and mandate that data sharing must occur
between stakeholders.

Integrating traffic signals to improve safety and enable
city-wide optimization bears similarities to the creationof a connected vehicle ecosystem. Actions such as
standardization, ensuring safe data-sharing practices,
and infrastructure development are equally critical for the
successful implementation of smart signaling systems.
However, this specific use case will necessitate some uniqueactions as well in order to ensure its success.
Transformation of traffic signal integration and dynamic
traffic control strategies
Traditional traffic control strategies include fixed-time,
vehicle-actuated, and adaptive signal control. Fixed-time
control utilizes historical traffic data to calibrate pre-set
signal parameters such as phase sequences, cycle lengths,
and green splits. Vehicle-actuated and adaptive signal
control apply infrastructure-based detectors to collectreal-time traffic data and adjust signal timings according totime-variant traffic demand.

Licensing could be another way to promote data
sharing among OEMs while addressing their concerns.
By establishing a licensing framework, OEMs maintaincontrol over their data usage, specifying its purpose,
duration, and any associated conditions. This framework
protects OEMs’ intellectual property, ensuring their data
is not used to infringe upon their patents, trademarks, orother proprietary rights. Licensing agreements can also
mandate strict privacy and security standards, providing
OEMs with reassurance about the protection of sensitive
data. An additional advantage is the potential for revenue
generation, as OEMs could charge fees for access to theirdata, creating a new business model. The clarity provided
by these legal frameworks reduces potential disputes andenhances communication between parties. Finally, licensing
can stimulate sector-wide innovation. Third-party accessto licensed data can lead to the development of new
applications, products, or services beneficial to the entire
industry, including the OEMs themselves.

For this transformation, connected and autonomousvehicle (CAV) technologies, communications between
vehicles (V2V), and between vehicles and infrastructure(V2I) provide a new source of data for traffic control.
This communication makes it possible to convey traffic
information (e.g., signal timings or speed advisory) fromintersections to vehicles in real time for trajectory planning
as well as collect detailed vehicle trajectory data (e.g.,
speeds and locations) for signal control. This means
capturing, processing and storing new data, robust
communication networks, prompt exchange of information,and new ways of designing real-time traffic control.
These issues are challenging in themselves as they aresuggesting an overall transformation of how traffic signal
integration and dynamic traffic control at strategy levelneeds to be materialized at operational level, which implies
change management at different levels. Engagementwith different stakeholders and change management
experts involved in this top to bottom transformation and aroadmap with concrete actions is fundamental to make thisnecessary change a reality.

Establishing forums or advocacy groups to educate bothindustry and consumers about the value of data exchange –especially its potential in preventing fatalities and improving
transport efficiency – will support a shift in mindset,
enabling broader adoption and support. This is inherently
a slow process, but clear and consistent messaging thatemphasizes the benefits of data exchange can help shift
mindsets. Publicizing case studies that demonstrate successis also key to building public confidence and trust. As partof an effort to shift the industry mindset, the government
could also offer tax breaks or other financial incentives toencourage OEMs and other stakeholders to share data.
These key actions not only support connected vehicles
but also have relevance across a number of other use
cases. The significance of these actions underscores theimportance of focusing on this particular use case andreinforces the need for concrete actions in implementation.

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Funding

Although there are already data standards in place,standards and specifications need to be developed for all
types of data (traditional and new data coming into themarket) to enable its effective use. Successful standardization
efforts need to break down the complexity of all the data
and data exchanges happening at traffic signal integrationlevel into simple elements that are easy to implement. Thismeans that that some existing standards might need to bereviewed and new ones created. The sooner this happens,
the more clarity City DOTs and industry will have to move
forwards to create and implement solutions.

Funding is the major enabling resource that can catapult
new traffic signal integration forwards. In urban areas,
traffic engineering departments are often competing for
funding with high profile agencies such as police and fire
departments, or more tangible capital improvements. Cities
might not see an obvious return on investment for adaptive
traffic-control systems. That could delay the transition totraffic signal integration and adaptive traffic management.
It is only a matter of time before cities would be required
to install distributed and connected traffic management
tools for AVs. Innovative funding mechanisms, so that every
city has the means to be ready for this new technologicalchange, need to be in place.

Sensing technology providers need to create solutions thatcan fit new and old systems
Integrated traffic signal systems will require that emerging
sensors not only use new technology, but also convey new
information to the existing control systems. This backwards
compatibility needs to be incentivized so that new providers
create solutions that also can adapt sensors, protocols,
data ingestion, and processing into existing systems.
This would be for cities that cannot afford to upgrade alltechnological changes that are needed all at once.

Introducing innovative funding mechanisms is key but
is not an easy task. A way of widening ideas might be to
examine successful initiatives in particular cities or states– or even from other industries – to see what lessons werelearned. It would also reveal insights into how different
funding initiatives were introduced to ensure that everyone
is included in the transformation and implementation of
enabling solutions such as traffic signal integration.

A stepwise integration approach is needed, engaging
technology providers and encouraging them to work with
City DOTs to understand current operations and current
infrastructure, acknowledge City DOTs current roadmaps for
digital transformation and agree on what types of upgrades
and solutions can be incorporated at different levels andstages of the development roadmap. This engagement
is crucial for guaranteeing equity of opportunities toincorporate traffic signal integration solutions that provide
stepwise advancements.

Data/time sensitivity challenges in traffic signal
integration
Challenges with just-in-time data integration
Typically, transportation data collection and use has
been siloed by transportation agencies. However, advancesin technology and more sophisticated management oftransportation systems are beginning to require real time,cross-agency data integration. This in turn, will require
the review of data standards for data capture, storage,
and exchange.

Guaranteeing the reliability of V2X communications andcomputational capability at application level

Challenges with time sensitivity
There is a need to standardize the frequency ofdata updates and refresh rates to respond to timedependency and a predictive nature of queries andadaptative traffic signals.

This is one of the critical factors that may influence theperformance of traffic signal integration and traffic
dynamic control. 5G communication should be one of the
supporting pillars for the next generation of traffic signal
integration, due to its speed and transmission range.
Provision of such infrastructure and incentives needs to
be in place for telecommunication companies in order tocover as much territory as possible and assure equity ofservice and opportunities.

Addressing these challenges needs to be a priority when
considering procurement. Implementation of solutions
for traffic signal integration, timing of data capture,
data processing, and actionable information are key forsuccessful and safe deployment. Technological providers
need to engage with City DOTs and key end users such as
first responders to understand user needs at operationaland response levels to ensure efficiency and safety.

Computational capability of traffic control systems needs tobe improved, expanded and incentivized. If not, informationcollected by CAVs might not be fully collected/processedin a timely way to improve traffic efficiency, or respondto the prompt changes of traffic demands. This could be
emergency services priority at intersections using traffic
signal integration, for example.

Data standards need to be in place
Transportation data sources cannot be converted to a new‘final’ schema overnight. The data sources will continue to
produce data in their respective schemas – and continue
to evolve – so a different architecture and integration
approach is needed. Equally, transportation datasets arehighly heterogeneous, with operational (i.e., transactional),
streaming, and archived data. Standards and solutions
about how this data need to be stored and processedmust be decided.

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The thrust of all this is about assuring robustness of thecommunication systems and the capability of traffic control
and traffic signal integration systems to deal with potential
exponential increment of data capture. Processing andcommunication at speed is a must for any solution to beeffective and safe. This requires engagement with technicalproviders and City DOTs to work on simulating, testing, andvalidating all components, interactions, risks assessments,
edge cases, and safety nets in case of failures.

The main challenge is that this is time critical. Dedicatedresources need to be put in place to create standards sothat City DOTs and industry can be sure that their solutions
are secured and compliant now. At the same time, thisshould be a continuous process with quick updates added
as new potential threats are identified.

3.3.3 Digital infrastructure architectureThis section will aim to define a shared data layer as partof a potential reference architecture, which will serve as acomprehensive blueprint for implementing the key actions
identified from the use cases. Eventually, USDOT will needto agree on a fully defined reference architecture which will
aim to offer guidance on standard protocols, system design,and best practices. This will be a crucial tool in aligning
the use cases with the overall vision of the national digital
infrastructure strategy. In this section, we offer some initialsuggestions of what a shared data layer might look like andwhat might be required to achieve it.

Real Time Situational Awareness for public safety
and various other use cases may have their own tightrequirements on latency, for instance having the systemenable network transport paths directly between
operational control centers and infrastructure components(in parallel with waiting for data to be received, analyzed,
and processed into a shared data system which may havea lower ‘refresh’ rate).
USDOT and State DOTs to standardize and apply common
communication and application layer protocols

The term ‘reference architecture’ is used in this context
with a perspective similar to that of ARC-IT: it serves as acommon framework and language for planning, defining,
and integrating intelligent transportation systems. The belief
is that this should include mandatory standards for dataexchange and security, but it should not dictate any specificimplementation methods for utilizing those standards. Thisdefinition differs from the one commonly used in industries
like the semiconductor field, where a reference architecture
may provide a complete blueprint for deploying a particular
product into a broader system.

The standardization of messaging protocols between
traffic management systems is essential for achieving
interoperability and improving safety and optimization.
An obvious challenge will be to get all stakeholders to agree
on standard protocols and ensure that existing systems canbe upgraded to comply with these new standards. USDOTand State DOTs will need to keep a balanced and phased
implementation approach so that standardization canbe applied by City DOTs and their stakeholders andtechnology providers.
At the same time, promoting the development ofstandardized interfaces for traffic management
applications is just as important. This could involve
setting guidelines for how applications should interact
with each other within a traffic signal integration setting.
Close collaboration between technology providers,
communication channels, USDOT, and State DOTs needs to
be in place so that the standards are kept up-to-date with
rapid technological advancements.

A shared data layer is ready for action
Successful digital infrastructure for US Transportation will
be a system of systems – that is to say there will be nocentral specification that describes everything, and no
single decision point where ‘the digital infrastructure’ isapproved and commissioned. This is due to the huge varietyof purchasing decisions, KPIs and potentially conflicting
requirements among stakeholders.

This could also involve agreement on a subset of easily
standardized ‘basic information’ to be made freely andeasily available (such as vehicle location, speed, direction)with more enriched ‘value-added information’ behinda paywall.
Cybersecurity standards need to be established
Resilience is just as important as a robust traffic signal
integration approach. Cybersecurity is at the top of priorities
on any solution that involves collection, processing andcommunication of critical safety data.
As well as standards for data and communication protocols,
cybersecurity should be at the forefront of critical actions toaddress issues such as privacy protection of individuals andthe security of vehicles and integrated traffic signal systems.
Standards for ITS and traffic signal integration need to be inplace from USDOT at national level, aligned with the National
Cybersecurity Strategy.

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The variety of purchasing decisions means thestandardization focus should be on data exchange,rather than mandating all layers of the technology stackright down to link layer and physical data carriers acrossthe entire system (as is possible in more centralized andmonogamous systems like some healthcare and smart
metering environments).

Individual data systems feed real time (or delayed andaudited/approved) data into the shared data layer, and in
return can take feeds contributed by others that help them
optimize their own functionality.
At the application level this provides a new trusted set ofholistic real-time data that applications can use for crosscutting applications like first response, overall safety, andso on. Instances of these applications may run on premises
or cloud systems operated by entities such as ECCs,
Traffic Operation Centers, Emergency Operation Centers(Emergency Management Agencies), Operation Control
Centers (Transit Agencies), Real Time Crime Centers and so on.

This also acknowledges significant previous and ongoing
financial investments in current (successful and/or safety
critical) systems that hold data that is valuable to digital
infrastructure use cases. It can be tempting to describe
these as legacy systems that simply need to be replaced,
but a more palatable approach may be to acknowledge
them and work on ways to make it easy and beneficial forowners of existing systems to integrate with, supply data to,or acquire data from the more widely connected system.

This data layer approach mirrors other international efforts
such as EONA-X within the European GAIA-X framework – forthe US it becomes even more important to retain autonomy
at the data system layer and standardize at the layer above,
given the regional ownership of the datasets and systems.

Given the stakeholder needs, there is clearly an increasing
appetite for services that use data supplied from multiple
systems at once.

The data layer helps entities announce and discovereach other’s data, access it, and exchange it. This isconsistent with the ‘integration layer’ of the DHS Information
Sharing Framework [ISF] for public safety. The latter also
references specific networking for endpoint access such as
NPSBN (FirstNet).

In this section we propose a staged strategy for data
standards for digital infrastructure that can be adopted
now, driving towards a vision of a shared data system thatenables a ‘digital twin of twins’. It has an innovative app
ecosystem providing valuable public services, relying on
reliable, secure, and trustworthy data feeds.

The data does not have to actually be a direct copy ofexisting data – in some cases it may be a set of endpointconnectors that can stream data directly from the source
systems (reducing latency and improving consistency).
This may be particularly important for real time situationalawareness in public safety situations – for instance wheremulti-jurisdiction multi-agency information sharing isrequired – in cases where low latency is critically importantthe shared data layer might be used simply to announceor discover relevant real-time data feeds (and maybe to
get approval to access them) – and then they might beaccessed directly, rather than waiting for other shared data
layer services to retrieve or analyse them.

This is proposed from an independent perspective – with theintention of driving discussion – rather than with a particularsolution in mind.
What is a shared data layer?
There are many levels at which national standardization
could occur. Not all of them are needed for all use cases,
and some will provide a higher return on investment thanothers. Many standards used in the combined system will,or already have, come together organically. But there is aclear opportunity to step in and accelerate specific parts ofthe process to achieve the stakeholder aims. Operating thesystem outlined here involves operational costs (e.g. networktransport costs, storage, hosting, and compute costs) which
will not happen without funding being in place.

A vehicle/OEM data section of the shared data layer isshown as it may have special requirements or need extra
control or ownership by OEMs. This goes in parallel witha potential mindset shift in OEMs that the safety of theirvehicles, and in turn customers, may now start to dependon third parties a lot more. This might be data from othervehicles or a smart traffic signal, or assurances about C-V2X
coverage, for example. OEMs have been used to significant
control over safety, and are likely to want more control thanother parties over data that their vehicles need to trust. Thisis reasonable if they are likely to take the ultimate liability forsafety impacts on the vehicles and passengers themselves.

A potential strategy that enables the articulated stakeholder
visions of digital twins and app ecosystems is to define a‘shared data layer’, with the intention of a new ecosystem
of innovative applications that accesses the shared data
to run algorithms, analytics, visualizations, and simulations,feeding back into decision making and ultimately digitallyintervening to influence what happens in the real world.

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The shared data layer diagram does not mandate what
technology is used for network transport. This aims torecognise that individual systems may be using different
network access routes to get to the data systems/
aggregators (for instance state deployed broadband
networks, commercial networks, cellular, etc.). Withinthe ‘individual system’ layer even more communications
standards and transport layers may be in use (C-V2X,

Key:  

Current  

New  Priority  

in-vehicle connectivity, etc.), and at the front end, users suchas first responders may be using dedicated transport layers
such as NPSBN (FirstNet). However, the broad concept isthat the shared data layer is internet facing on both sides,
to enable maximum public and commercial benefit andmaximum uptake by data owners and application providers.

Comms / transport layers

Figure 1: How a shared data layer contributes to the system of systems

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Data in the shared data layer (‘twin of twins’)

Applications that run above this dataset might include
rendering and visualization of the data in 3D format –either the existing state or audit/forensics of historical data.
Alternatively, snapshots of the current state of the twin of
twins can be taken into the application layer for non-realtime ‘what if’ operations such as simulations, predictive
analytics, and planning. There is also a host of other non3D applications that can use the same data (analytics,
optimization, user apps, information, sustainability tracking,data driven decision making, etc.).

The basis for predictive analytics, data-driven decision
making, simulations, ML/AI, and adaptive optimization
is a persistent digital twin – an ‘always on’ digital
representation of what is happening right now acrossthe combined systems.
The datasets in the shared data layer form the inputs into
this ‘twin of twins’.
Individual existing systems are likely to operate their own
digital twins and analytics – those do not need to be
replaced, but provide data streams that help form the wider
connected twin of twins.

Some potential feeds into the shared data layer are shown
here. The intention is that the system can grow and include
cross checks to enable higher data quality as new data
feeds become available.

Figure 2: Example Twins

Key:  

21
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Example data feeds

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

Why have a shared data layer?

Collaboration
The data together is more than the sum of its parts – forthe first time there could be holistic views of sustainability,
safety performance, equity, and economic performancein one place. This in turn allows a whole new suite of data
driven decision making at the transport system level.

The shared data layer is the key to interoperability ofexisting systems. Obviously this is important for multimodaltransportation and presenting a ‘seamless’ view totransportation users. But it also enables other new services
that are otherwise hard to achieve.

SecurityThis approach enables digital security controls that were
not there before – for instance by mandating in the API that
incoming data is digitally signed, suddenly transparency
and accountability for datasets and their quality is vastly
improved, ultimately reducing the cost of litigation. It isalso a place to enforce privacy measures that reassure
both commercial entities and users about confidentialityof their data.

It removes a barrier to scaling individual PoCs that don’t
make it to larger scale deployment – by enabling multiple
suppliers, regions, and PoCs to jointly build the shared datasystem in a collaborative, interoperable way.
App ecosystem
This is a central pillar of a competitive innovative app
ecosystem – rather than an app developer having toconsider hundreds of interfaces to underlying systems toachieve a user facing output, they have one place to go for‘known good’ trusted data.

Scaling and efficiency
Finally, this approach allows the clear appetite for scalingof PoCs into regional and national solutions, unlocking
investment in component and system design that isinteroperable across regional boundaries and providing
system wide efficiencies, cost savings, and future proofing.

Partnerships
It enables public private partnerships by acting as a clear
framework for services and defining who owns data when –while also enabling market competition to provide the systems
and services underneath the data layer, the services that
operate the data layer, and the app ecosystem on top of it.
How a shared data layer enables two example use cases

Figure 3: Benefits of a shared data towards two use cases

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Declare the ambition and candidate first actions

Market signal for standardizing a shared data layer (Twin of Twins)
Define data ownership,liability, and privacy
policies

Standards and processes to give assurances to 1) commercial entities about what their
obligations, responsibilities, and liabilities are on feeding data into the system, and how
data ownership will be assigned (including for processed data), and 2) users on personal
data anonymity, particularly for equity applications where personal data might be useful,safety data that might identify cars or drivers, or payment data. Unlike some personal
data approaches, the future use cases of the data in an innovative app ecosystem might
not be known at data collection time, so this might lead to a stronger case for anonymity
earlier in the data management process. This work is key to deployment but also acquiringhigh quality, reliable, accountable, and trustworthy data.

People and process
guidance

Given these standards/processes, updated guidance is needed on what skillsets are
expected to be required in organizations (public and private) to be able to comply
with them. This covers audit, IT, developers, security policy management, governanceand so on.

Define APIs for data layerWith agreement that the shared data layer will exist, work can start on defining accessand datatypes to stream data in and out of it, with some lead use cases and integrationof key data sources (e.g., FHWA, NHTSA) to pipeclean the process, data agreements, and(competed) service contracts.

Definitions to makeservices competitive

There is a desire to keep provision of digital infrastructure services competitive, rather
than one or two systems dominating. Work could be carried out to define the obligations
and interfaces to particular data layer services (e.g., providing storage, providing hosting,providing compute) so that they can be competitively procured and provided in aninteroperable way. This could include evaluating current digital infrastructure solution
providers for how well they would fit a competitive approach, as well as defining rules forallowing services and data to be moved from one provider to another. It could include
templates or standards to refer to for procurement.

Refine impact
assessments (of ‘shareddigital infrastructure’on environment, equity,
public safety)

A short assessment could be carried out to measure impacts of a shared ‘data layer’.
A) Sustainability, stacking emissions of associated datacenter processing against
potential benefits of having a holistic and quantitative view of sustainability across DOT
transportation to inform policy and decision making. B) Impact on equity of being able
to enforce specific data useful to equity projects and use cases. C) Benefits and risks topublic physical and cyber safety. D) Economic benefit to the US.

Make it easy to procure

Processes should be defined to help public sector organizations match potential digital
infrastructure related projects with a shared data layer architecture, while meeting theirown goals. This might include a new lightweight process that recognizes that procurementof digital systems or apps does not require the same safety and environmental impact
assessments as more traditional transportation procurements. Support is required to giveconsistency across the procurement process – for instance having specific standards on
what makes a system ‘shared data compliant’ that can be called up in ITTs.

Enable the app
ecosystem

App ecosystems happen faster if they have a low barrier to entry, if data access is simple(well defined, published, with language independent APIs or supporting libraries) and if
there is a clear route to being paid. Funds could be directed to kickstart app developmentin specific areas of interest or ‘super’ use cases.

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Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

4 Stakeholder participation and collaboration
One of the key steps towards alignment in a digital
infrastructure strategy is acknowledging the stakeholders
within the ecosystem. Failure to deliver on a cohesive
digital infrastructure will risk the safety of all users andput operational functionality, reliability, and securityof the national transportation system at risk. Industry
stakeholders will be challenged to provide economic, social,and sustainability benefits to society. This means that it isessential to understand the complex stakeholder map within
the digital infrastructure ecosystem and articulate the value
each stakeholder receives and brings.

Key:  

Enabling organizations  

End users  

The mapping below (Fig. 4) identifies group categories witha stake in digital infrastructure (from working group sessions
thus far and reiterated at the April 2023 digital infrastructure
workshop) identifying how information or influence flows
between them. Note that it omits any indication of monetaryflows and is not fully comprehensive.

Digital Infrastructure User Interfaces  

Figure 4: Stakeholder Map

24© Cambridge Consultants & ITS America 2023

State & local public entities

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

4.1 Stakeholder engagement strategy

We assume that end users are businesses or individuals
who may use or operate a range of transportation methods(public, commercial, shared, or personal), or public entities
including emergency responders who would need specificconsideration regarding traffic management. There are
a number of entities that are responsible for the digital
infrastructure (DI) user interfaces, such as OEMs, supporting
technology providers, equipment distributors, application
developers, and transit providers. This stakeholder groupeffectively create the digital infrastructure and theinterfaces by which users access transportation, whether
that is via a transportation planning application, creatinga supply chain plan, leasing a vehicle, or coordinating adelivery slot. These digital infrastructure interfaces arereliant on information, guidance, and infrastructure from anumber of enabling organizations who contribute to anddraw from shared data (e.g. vehicle, weather), or otherwise
support the deployment of digital infrastructure. A flowof influence through policy-setting, standards, funding,and project-commissioning across departments oftransportation and associated agencies (state and local
public entities and Federal officials) enable the foundations
from which the transportation system is shaped. Ensuringthat this collaboration is well-informed through insights fromresearch programs, citizen and other end-user advocates,
plus technical guidance from providers, is a key component
to the success of digital infrastructure deployments.

Mapping the stakeholder groups against the prioritization
matrix below (Fig. 5) lays out our assumptions on how heavily
each group is impacted by digital infrastructure. This classic
analysis technique ensures that we are maintaining anappropriate and realistic level of engagement with eachstakeholder group, and are communicating key informationor seeking influence from the right voices at the right time.
It also outlines why USDOT should prioritize the needs ofusers first, ahead of other stakeholders, whilst actively
acknowledging the importance of all impacted groups.
Note: all groups are important voices in the conversation,
but they might be kept engaged in different ways as partof influencing the digital infrastructure strategy overall.

4.1.1

Level of influence on digital infrastructure

Through the mechanisms of the current ecosystem,
stakeholders with a high degree of influence ontransportation digital infrastructure are likely to besolution providers and OEMs, as they are alreadyactively engaged in using and generating data fromthe transport system, and state DOTs/MPOs through thespecification of projects and programs.

4.1.2 Degree of impact from digital infrastructure

The next section briefly describes a suggested strategy
around engagement with digital infrastructure stakeholders.

Transportation end users and freight transporters are mostimpacted by transportation digital infrastructure as they are
directly affected by the quality of the system and its ability tomeet their immediate needs. For example, if data sharing is
not efficiently implemented between transportation entities,
this could affect the efficiency of a public transit system andultimately reduce its value to end users of the system.

4.1.3 Stakeholder collaboration strategies
Bearing this landscape in mind, we should align our
engagement strategies with each stakeholder group
to match their level of influence and impact against
digital infrastructure.
Meet their needs
Ensure that providers and developers are well enabled toboth contribute and gain value from a more collaborative
and, where necessary, shared digital infrastructure – e.g.
through standardization of protocols and accessibility ofdata. Providing a strong and open-minded basis for creative
development to third parties ideally maximizes value.

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Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

As digital infrastructure develops, communities of data
consumers and owners (including, for instance, connectedvehicle OEMs and ATMS systems) need to be establishedand cultivated to build comprehensive discourse andfeedback loops on data standardization needs. Notably,
the ITS America Digital Infrastructure Workshop in April 2023
had low representation from end user groups, with only
0.3% of attendees classified as end users. This indicates aneed for more intentional engagement with end users or
representative bodies.

In particular, addressing the USDOT goal of increasing
equity, increasing and maintaining efforts to engage
historically marginalized and underrepresented communities
when refining policy and enabling feedback loops aroundplanned updates is vital.
Engaging representatives of freight transporters andpublic safety organizations which coordinate the nation’s
emergency response services is important.
MonitorActively engage

Ensure at key touchpoints that the enabling infrastructureand equipment is working efficiently with the current andintended digital infrastructure.

Empowering those who are most heavily impacted by theoutcome of digital infrastructure strategy makes sense.
Ideally, citizen advocacies/research bodies are valuable
representatives for the collective voice of end users
and research-informed guidance on what needs digital
infrastructure must meet. Additionally, it is vital to enable
continuous active engagement as directly as possible
on strategy at the top level, rather than simply collecting
feedback on specifically planned initiatives.

Key:  

Enabling organizations  

End users  

Show consideration
Enablers of digital infrastructure need to be well informed by
the requirements of providers, developers, and technology
to be able to deliver what they need (and ultimately why) interms of user needs.

Digital Infrastructure User Interfaces  

Figure 5 Stakeholder Matrix

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State & local public entities

Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

5 Turning strategy into action
6. Policy and regulatory framework: Develop supportive
policies and regulatory frameworks to facilitate theimplementation of the digital infrastructure strategy.
Address legal, privacy, and security considerations, andestablish guidelines for data sharing, interoperability,and emerging technologies.

The growing consensus among stakeholders is clear:
USDOT must take the lead without delay.
In Section 3, specific actions associated with two example
use cases were presented. Some of those actions are
not limited to a single use case and can be applied more
broadly across other use cases as well. Additionally, below
is a summary of the high-level actions that the USDOT shouldtake concerning Digital Infrastructure.

7. Start making a difference: While Proof of Concepts (PoCs)
serve a role in exploring new technologies, the focus
should now shift toward implementing changes thatyield direct and meaningful impacts on citizens’ lives.
The emphasis should be on scaling up new technologies
in real-world settings through proven methodologies,
such as Scaled Agile, which strike a better balance
between risk and progress. Adopting this approachensures that taxpayer dollars are spent efficiently anddelivers tangible benefits to communities.

1. Setting a common vision: Clearly articulate the goals andobjectives of the digital infrastructure strategy. Identify
the specific outcomes and benefits that the strategy aims
to achieve, such as improved efficiency, enhanced safety,
and increased connectivity.
2. Establish a roadmap with defined milestones: Develop adetailed roadmap that outlines the timeline, milestones,
and actions required to implement the strategy. Breakdown the implementation into manageable phases,
prioritizing critical initiatives and ensuring a systematic
approach to deployment.

8. Emphasizing citizen-centric changes: The ultimate goalof any transportation infrastructure should be to enhance
the quality of life for citizens. By adopting digital solutions,such an infrastructure can improve accessibility,
encourage multimodal transportation options, offer realtime information to commuters, and create a seamless,convenient travel experience. USDOT should prioritize
projects that directly address citizens’ needs andaspirations to ensure their satisfaction and well-being.
Public awareness campaigns should be conducted toeducate both stakeholders and the general public about
the benefits of a digital infrastructure strategy. It is also
important to seek feedback and input from users andcommunities to ensure that their needs and concerns are
addressed during implementation.

3. Define the digital infrastructure: Come to a consensus
around the definition of DI. Some of the aspects which
this definition needs to include are:
 Technology and innovations of importance An agreed reference architecture and related
standards
 Key stakeholders
 Priorities and goals

9. Leverage industry associations to foster collaboration:
Leverage industry associations like ITS America toencourage collaboration among various stakeholders,
including government agencies, private-sector entities,
academic institutions, and other industry associations.
Promote regular communication, knowledge-sharing, andcoordinated efforts to achieve alignment and synergy inthe strategy’s implementation.

4. Prioritize relevant industry use cases: USDOT should
identify and continue to foster innovative initiatives
through industry use cases with the most significant
impact. This will help prioritize actions and align strategy
with clear and measurable outcomes. These initiatives
should be designed to align with the defined milestones
and the common end vision, to avoid projects operatingin silos.

10. Partnerships and collaboration: Foster partnerships
and collaborations with technology providers,
telecommunications companies, academia, research
institutions, and other relevant stakeholders. Leverage
their expertise, resources, and innovative solutions
to accelerate the implementation of the digital
infrastructure strategy.

5. Allocating funding for technology: Create dedicatedfunding programs specifically aimed at theimplementation and advancement of transportation
technologies, including digital infrastructure, isimperative. The suggestion is not necessarily to increase
overall funding but to divert a portion of resources fromtraditional projects toward technology investments.
This reallocation could pave the way for a sustainable
and future-proof transportation system. Such funding
could support initiatives like digital traffic management
systems, intelligent transportation networks, electricvehicle charging infrastructure, and data-driven
transportation planning.

11. Review and adapt: Regularly review the digital
infrastructure strategy to assess its relevance and adapt
it to evolving technological advancements, user needs,
and policy changes. Embrace a flexible approach thatallows for adjustments and updates as the transportation
landscape continues to evolve.

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Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

6 Next steps
Wider scale actions for USDOT

Numerous actions have been identified in the previous
sections of the report. While all these actions are relevant,
it is crucial to phase them correctly to ensure theircomplementary nature and alignment with a common goal.

VisionThis will also include Vision Zero goals, however, in order toprovide clearer guidance for years to come the vision should
be comprised of realistic, achievable, and measurable
goals that underpins all proof-of-concept initiatives, usecase developments, and milestones. This vision should be
agreed upon with stakeholders and serve as a reference
point from the very beginning, towards which all efforts are
aimed. Given the extended timeframe, the vision must also
be adaptable to changes in technology, societal needs, andglobal conditions.

As immediate next steps, USDOT should concentrate on
two primary actions:
1. Setting a common vision – develop an overarching
digital infrastructure vision for the transportation sector
and ensure that all stakeholders are aiming towards thesame result.
2. Establish a roadmap with defined milestones – create
a way to measure progress towards this ambitious vision,
thereby creating a constrained roadmap. This framework
will guide stakeholders and direct the scaling of theuse cases and reference architecture, thus, ensuringthat different state initiatives are not siloed and all work
towards a common goal.

Roadmap
Similar to the vision, the roadmap with milestones also
needs to be agreed upon with stakeholders. These
milestones should clearly define what is to be achieved,
and there should be a mechanism in place for quantitatively
assessing whether the goals have been reached. It is
crucial that these milestones are not only ambitious, butalso achievable and subject to regular monitoring. State
DOTs will be key stakeholders in this process, as they will
be directly involved in distributing federal funds to specificimplementation projects. A directives-based approach tothe milestones could be a suitable method for engaging
State DOTs. This would ensure an equal, nationwide
commitment to achieving these milestones.

The figure on the following page envisions a potential
framework that will assist the USDOT in shaping theirnational strategy.

Short term actions not solely for USDOT (next 1-3 years)

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Digital Infrastructure Strategy Report: Shaping the future of transportation in the United States

7 Conclusion
The era of digital transformation within the transportation
sector presents both immense opportunities and significant
challenges. USDOT is at a pivotal juncture where the actions
it takes today will significantly influence the trajectory of the
US transportation sector for decades to come.

What is more, this digitally-enhanced transportation
landscape presents significant economic opportunities,
fostering job creation, industry growth, and infrastructure
modernization. Thus, scaling up the digital infrastructure not
only aligns with the vision of safety, equity, and sustainability
but also serves as a powerful engine for economic
development.

To successfully navigate this complex landscape, it isimperative for USDOT to promptly design and implement acomprehensive digital infrastructure strategy. This strategy
should be grounded in a realistic and achievable vision,underpinned by measurable milestones. USDOT must also
take a proactive approach to engaging key stakeholders,
understanding their needs and incorporating their input
into strategic decisions. Additionally, USDOT should prioritize
those industry use cases with the highest impact andcontinue to foster innovation in these areas by promoting
key national and state-driven projects. Establishing adefined reference architecture will provide crucial guidanceon standard protocols, system design, and best practices,
serving as a blueprint for scale-up and future initiatives.

In this light, we urge USDOT to act decisively. The decisions
made and actions taken in the immediate future will set thecourse for the transportation industry’s evolution in the US,
with broad implications for safety, efficiency, sustainability,and end user experience. By following the outlined steps
and maintaining a forward-looking, inclusive approach,
USDOT can shape a future where digital technology plays
a transformative role in transportation, delivering immense
benefits for all stakeholders. The present moment calls forfirm action and courageous leadership.
ITS America stands ready to support USDOT in this work andwill continue to convene digital infrastructure stakeholders
to identify best practices, additional use cases, andappropriate milestones for digital infrastructure deployment,
among other issue areas. ITS America firmly believes that
USDOT is well-positioned to successfully lead these efforts,
and that ITS America’s membership is ideally situatedto support the delivery of the next generation of digitaltransportation infrastructure.

In the development and deployment of this strategy,
the creation of an ecosystem and landscape for scaling
digital infrastructure is paramount. This ecosystem, built
on cooperation, interoperability, and data-sharing, will
accelerate the deployment of Intelligent Transport Systems(ITS) on a national scale. ITS will pave the way for more
integrated, efficient, and safe transportation solutions,promoting equitable access to mobility and reduced
environmental impact. By embracing open data andstandardized protocols, this approach allows for greater
innovation and inclusivity, ensuring a digital infrastructurethat is adaptable to future changes and responsive tousers’ needs.

29© Cambridge Consultants & ITS America 2023

About ITS America
The Intelligent Transportation Society of America wasfounded by Congress to advise the federal government
on digital transformation in transportation and is
the only organization that brings together private
industry, government, researchers, non-profits, andcommunities to advance the deployment of intelligent
transportation technologies to save lives, promotesustainability, and increase access and opportunity for
all communities. Our vision is a better future transformedby transportation technology and innovation that is
Safer, Greener, and Smarter for All. For more information,please visit www.itsa.org.

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