HOUSE OF REPRESENTATIVES STAFF ANALYSIS
BILL #: CS/CS/HB 425 Transportation
SPONSOR(S): Infrastructure & Tourism Appropriations Subcommittee, Transportation & Modals
Subcommittee, Esposito, Andrade
TIED BILLS: IDEN./SIM. BILLS:
REFERENCE ACTION ANALYST STAFF DIRECTOR or
1) Transportation & Modals Subcommittee 17 Y, 0 N, As CS Johnson Hinshelwood
2) Infrastructure & Tourism Appropriations 13 Y, 0 N, As CS Hicks Davis
3) Infrastructure Strategies Committee
The bill addresses matters related to transportation. The bill:
Requires the Department of Transportation (DOT) to coordinate with certain entities to establish standards by
which the State Highway System will be graded according to their compatibility with the operation of autonomous
Codifies the Implementing Solutions from Transportation Research and Evaluating Emerging Technologies (I-
STREET) Living Lab within the University of Florida and provides for its duties relating to transportation research,
education, workforce development, and related issues.
Provides that a producer of construction aggregates (gravel, sand, etc.) may not represent that an aggregate is
certified for use unless such aggregate complies with DOT rules.
Provides that a local governmental entity must accept an electronic proof of delivery for construction materials.
Requires DOT contracts for bridge work over navigable waters to require a marine general liability insurance
provision in an amount determined by DOT.
Requires DOT to implement strategies to reduce project costs while still meeting applicable federal and state
Authorizes DOT to share up to 10 percent of construction cost savings with design and engineering consultants
whose input was involved in realizing the cost savings.
Provides that stipends paid by DOT to nonselected design-build firms that have submitted responsive proposals
for construction contracts, which stipends are contained in DOT’s legislatively -approved work program, are not
subject to specified documentation and notification requirements.
Authorizes a contractor who desires to bid exclusively on const ruction contracts with proposed budget estimates
of $2 million or less (increased from $1 million) to submit reviewed, rather than audited, annual or interim financial
Authorizes an applicant for a contractor certificate of qualification to submit a request to keep an existing
certificate, with the current maximum capacity rating, in place until the expiration date of the existing certificate.
Repeals a public records exemption for documents that reveal the identity of a person who has requested or
obtained a bid package, plan, or specifications pertaining to any project to be let by DOT.
Authorizes DOT to request legislative approval of a proposed turnpike project regardless of how complete the
project’s design phase is.
Authorizes DOT to use existing resources for workforce development and promoting career paths in Florida’s
road and bridge industry.
The bill has an indeterminate fiscal impact on state and local governments and the private sector.
The bill has an effective date of July 1, 2023.
This docum ent does not reflect the intent or official position of the bill sponsor or House of Representatives .
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I. SUBSTANTIVE ANALYSIS
A. EFFECT OF PROPOSED CHANGES:
Autonomous Vehicle Grading Standards for the State Highway System
Florida law defines the term “autonomous vehicle” to mean any vehicle with an automated driving
system.1 The term “automated driving system” is defined to mean the hardware and software that are
collectively capable of performing the entire dynamic driving task2 of an autonomous vehicle on a
sustained basis, regardless of whether it is limited to a specific operational design domain. 3
Autonomous vehicles are equipped with advanced sensors, such as radar, LIDAR, or cameras, and
computing abilities to perceive surroundings and activate steering, braking, and acceleration actions
without operator input.4
Currently, Florida roads are not graded or categorized according to their compatibility with autonomous
Effect of the Bill
The bill requires DOT to coordinate with federal, regional, and local partners, as well as industry
representatives, to establish standards by which roads on the State Highway System 5 must be graded
according to their compatibility with the operation of autonomous vehicles. In establishing these
standards, DOT must consider factors including, but not limited to, the structural adequacy and safety
of each road and the particular challenges that the overall driving environment of each road may
present to a fully autonomous vehicle operating with the automated driving system engaged. These
autonomous vehicle grading standards must be incorporated into standards for transportation projects
involving the construction of new roads or maintenance of existing roads on the State Highway System.
Implementing Solutions from Transportation Research and Evaluating Emerging Technologies
(I-STREET) Living Lab
Florida law codifies various centers, institutes, and special programs within the State University
System, including the Florida Industrial and Phosphate Research Institute at Florida Polytechnic
University,6 the H. Lee Moffitt Cancer Center and Research Institute at the University of South Florida, 7
the Louis de la Parte Florida Mental Health Institute at the University of South Florida,8 the Florida
1 S. 316.003(3)(a), F.S.
2 Section 316.003(3)(b), F.S., defines the term “dynamic driving task” to mean all of the real -time operational and tactical functions
required to operate a vehicle in on-road traffic within its specific operational design domain, if any, excluding strategi c functions such as
trip scheduling and selection of destinations and waypoints.
3 S. 316.003(3), F.S. Section 316.003(3)(d), F.S., defines the term “operational design domain” as a description of the specifi c operating
domain in which an automated driving system is designed to properly operate, including, but not limited to, roadway types, speed
ranges, environmental conditions such as weather and time of day, and other domain constraints.
4 Department of Transportation, Florida's Connected and Automated Vehicle (CAV) Initiative, https://www.fdot.gov/traffic/teo-
divisions.shtm/cav-ml-stamp/connected-vehicles (last visited Feb. 15, 2023).
5 S. 334.03(24), F.S., defines the term “State Highway System” to mean the interstate system and all other roads within t he state which
were under the jurisdiction of the state on June 10, 1995, and roads constructed by an agency of the state for the State High way
System, plus roads transferred to the state's jurisdiction after that date by mutual consent with another govern mental entity, but not
including roads so transferred from the state's jurisdiction. These facilities shall be facilities to which access is regulat ed.
6 S. 1004.346, F.S.
7 S. 1004.43, F.S.
8 S. 1004.44, F.S.
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Institute for Child Welfare at Florida State University,9 and the Center for Urban Transportation
Research at the University of South Florida.10
Center for Urban Transportation Research
Florida law establishes the Center for Urban Transportation Research (CUTR) at the University of
South Florida (USF), which is administered by the Board of Governors. CUTR’s responsibilities include,
but are not limited to, conducting and facilitating research on issues related to urban transportation
problems in this state and serving as an information exchange and depository for the most current
information pertaining to urban transportation and related issues. 11
CUTR serves as a continuing resource for the Legislature, DOT, local governments, the nation's
metropolitan regions, and the private sector in the area of urban transportation and related research
and must generate support in addition to its state-funded support. CUTR must promote intercampus
transportation and related research activities among Florida's universities in order to enhance the ability
of these universities to attract federal and private sector funding for transportation and related
CUTR’s advisory board must periodically and objectively review and advise the center concerning its
research program. Except for projects mandated by law, CUTR may not undertake state-funded base
projects without advisory board approval. CUTR’s advisory board consists of nine experts in
transportation-related areas, including the secretaries of DOT, the Department of Environmental
Protection, and the Department of Economic Opportunity, or their designees, and a member of the
Florida Transportation Commission.13 The remaining members of the board are nominated by the
President of USF, as submitted by USF’s College of Engineering, and these appointments are
reviewed and approved by the Florida Transportation Commission and confirmed by the Board of
I-STREET Living Lab
The University of Florida (UF) College of Engineering’s Transportation Institute aims to advance
transportation, disseminate research results, and provide educational opportunities related to
transportation. The institute is an umbrella organization housing several transportation-related
UF’s Transportation Institute, DOT, the City of Gainesville, and others have partnered to create the
Implementing Solutions from Transportation Research and Evaluating Emerging Technologies (I-
STREET) Living Lab. I-STREET’s principal objective is to make significant improvements to
transportation safety and mobility, utilizing a real-world testbed environment that has been created on
and surrounding the UF campus and the expanding set of diverse technology installed on Florida
segments of the Interstate Highway System.16
DOT has invited transportation industry leaders to participate in the UF I-STREET program. According
I-STREET is designed to assist in implementing emerging technologies aimed at safety and
mobility improvements. DOT will develop requests for proposals utilizing the emerging
technologies and will select vendors through a competitive bidding process. The selected
9 S. 1004.615, F.S.
10 S. 334.065, F.S.
11 S. 334.065(1), F.S.
12 S. 334.065(2), F.S.
13 The Florida Transportation Commission is a citizen’s advisory board for the Department of Transportation. Florida Transportation
Commission, Ab out Us, http://www.ftc.state.fl.us/aboutus.shtm (last visited Feb. 15, 2023). See also s. 20.23(2), F.S.
14 S. 334.065(3), F.S.
15 University of Florida Transportation Institute, Overview, https://www.transportation.institute.ufl.edu/overview/ (last visited Feb. 15,
16 UF, I-Street Living Lab , https://www.transportation.institute.ufl.edu/i-street-living-lab/ (last visited Feb, 15, 2023).
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vendor for each project will deploy technology solutions. UF will conduct before-and-after
evaluations of implemented projects. After evaluation, DOT will consider whether to expand the
successful I-STREET projects elsewhere in the state.
DOT has allocated funding for these innovative projects each fiscal year from Fiscal Year 2020-
2021 until Fiscal Year 2024-2025. DOT plans to fund multiple projects each year based on the
projects' merits and safety and mobility improvement potential. The number of awards will vary
depending on the project type and scope.17
Effect of the Bill
The bill codifies in statute the I-STREET Living Lab within UF. The bill requires I-STREET, at a
Conduct and facilitate research on issues related to innovative transportation mobility and safety
technology development and deployment in Florida and serve as an information exchange and
depository for the most current information pertaining to transportation research, education,
workforce development, and related issues.
Be a continuing resource for the Legislature, DOT, local governments, the nation’s metropolitan
regions, and the private sector in the area of transportation and related research.
Promote intercampus transportation and related research activities among Florida universities
to enhance the ability of these universities to attract federal and private sector funding for
transportation and related research.
Provide by July 1, 2024, and each July 1 thereafter, to the Governor, the President of the
Senate, and the Speaker of the House of Representatives, a comprehensive report that outlines
I-STREET’s clearly defined goals and its efforts and progress on reaching those goals.
The bill creates an advisory board to periodically review and advise I-STREET concerning its research
program. The board consists of nine members with expertise in transportation-related areas, including:
A member appointed by the President of the Senate.
A member appointed by the Speaker of the House of Representatives.
The Secretary of Transportation or his or her designee.
The Secretary of Economic Opportunity or his or her designee.
A member of the Florida Transportation Commission.
Four members nominated by UF’s College of Engineering and approved by UF’s president.
These nominees may include representatives of UF, other academic and research institutions,
or private entities.
Aggregates are raw materials such as gravel, crushed stone, and sand. When combined with a binding
medium such as water, cement, or asphalt, aggregates form compound materials, including asphalt
Section 334.044(10)(d), F.S., authorizes DOT to adopt rules relating to approval of aggregate and other
Section 334.179, F.S., provides that notwithstanding any law, rule, or ordinance to the contrary, a local
government may not adopt standards or specifications that are contrary to DOT’s standards or
specifications for permissible use of aggregates that have been certified for use. The term “certified for
use” means that the aggregates have been certified by the producer in accordance with DOT rules. 19
17 Department of Transportation (DOT), UF I-Street, https://www.fdot.gov/traffic/its/projects -deploy/cv/maplocations/uf-testbed.shtm (last
visited Feb. 15, 2023).
18 Association of Equipment Manufacturers, Construction Aggregates 101: What They Are (And Why They Matter) (July 8, 2021),
https://www.aem.org/news/construction-aggregates-101-what-they-are-and-why-they-matter (Last visited Feb. 15, 2023).
19 Section 334.179, F.S., does not apply to a multicounty independent special district created by a special act of the Legislature.
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DOT’s rules regarding aggregates 20 provide a standardized method for producers of construction
aggregates to apply for, receive, and maintain DOT approval of construction aggregate sources for use
on DOT projects. Source and product approval, and maintenance of an on-going effective Quality
Control Program, comprise DOT’s primary methods of determining acceptability of aggregate on DOT
DOT’s Aggregate Acceptance Unit within the Materials Office ensures the quality of aggregates in
Florida’s transportation system by approving and monitoring aggregate sources. It develops, reviews
and recommends changes to DOT’s policies and specifications for aggregate materials used in
construction. It also conducts ongoing DOT research and evaluation of aggregate performance, base
materials including new aggregate sources and recyclable waste products. 22
Effect of the Bill
The bill amends the definition of “certified for use” as it relates to aggregates by clarifying that the
aggregates have been certified by the producer “in compliance with” (rather than “in accordance with”)
DOT rules, and the bill clarifies that the applicable DOT rules are those adopted pursuant to section
The bill provides that a producer may not represent that an aggregate is certified for use unless such
aggregate is in compliance with DOT’s rules adopted pursuant to section 334.044(10)(d), F.S.
Electronic Proof of Delivery for Material Delivery