The impact of Autonomous Vehicles (AVs) on our everyday lives depends on their usage and operation, as they can yield either favorable or unfavorable outcomes. AVs with self-driving capabilities can generate trips by zero-occupancy vehicles (ZOVs), i.e., AVs that travel without passengers. Unlike occupied AVs that replace human-driven trips, ZOVs generate additional empty vehicle circulation as they reposition between trips or seek parking, raising distinct concerns for traffic management, environmental sustainability, and infrastructure planning. While prior research has focused on quantitative modeling of ZOV impacts, policymakers and stakeholders’ perspectives on regulating this emerging technology remain underexplored. This study addresses this gap through qualitative analysis of focus groups and interviews with 45 stakeholders in Toronto, Canada, including planners, engineers, and policymakers. Toronto provides a relevant case study as a major North American city actively planning for AV deployment, with municipal authority over transportation policy that enables regulatory innovation. Through thematic analysis, we identify key policy concerns such as congestion management, environmental sustainability, infrastructure adaptation, and the economic implications of AV adoption. Stakeholders emphasized the need for regulatory interventions to limit unnecessary ZOV trips. Specific recommendations include establishing dedicated lanes and designated testing areas for safe ZOV deployment, creating comprehensive mobility pricing frameworks, and leveraging data from connected vehicles and infrastructure for real-time traffic management and emergency response prioritization. Standardization and cross-sector collaboration between government, industry, and academia were seen as critical to ensuring an effective transition. Our findings provide evidence-based guidance for policymakers navigating the regulatory challenges of ZOV deployment and highlight the need for adaptive, collaborative governance approaches in the context of rapidly evolving autonomous vehicle technology.
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