5-02. Scope of Work.CV SCMS.docx

SCOPE OF WORK

Utah Department of Transportation (UDOT) Request for Proposals (RFP) Connected Vehicle Security Certificate Management System

Purpose of this Request for Proposal The Utah Department of Transportation (UDOT) is seeking proposals from qualified vendors to provide a comprehensive solution for a Connected Vehicle Security Certificate Management System (CV SCMS). This system will enable the secure enrollment, issuance, management, and validation of digital certificates for connected vehicles, ensuring secure communication and data exchange within the vehicle-to-everything (V2X) network. The solution should ensure compliance with industry standards and regulatory requirements related to vehicle cybersecurity. As described below, UDOT’s current V2X security certificates are provided by Integrity Security Services (ISS) through a contract with Panasonic of North America. The contract with Panasonic is expiring, so UDOT is seeking a direct contract with an SCMS provider to replace that service.

Objectives The main objectives of this system are to:

1. Enroll, issue, manage, and renew security certificates for J2735 messages transmitted between end entities, including onboard units (OBUs), roadside units (RSUs), and related systems.

2. Ensure compliance with relevant cybersecurity standards and regulations.

3. Provide a secure, scalable, and user-friendly platform that can support many end entities and related devices (including those already deployed), facilitate enrollment and top-off, and allow for monitoring and management of certificates throughout the system.

4. Streamline certificate lifecycle management, including issuance, validation, top-off, misbehavior, and revocation.

5. Support the issuance and management of certificates for agencies other than UDOT within the State of Utah.

6. Minimize risks related to unauthorized access and potential cybersecurity threats in connected vehicle ecosystems.

7. Interoperability with V2X security certificates issued by other vendors.

Background Connected vehicle technology is the next generation of traffic management. It can provide mobility improvements, increased transportation reliability, reduced environmental impacts, and safety benefits. UDOT’s primary goal for connected vehicle technology is to provide information to drivers (both human and automated) which can prevent crashes and save lives. Connected vehicle technology is part of UDOT’s effort to reach Zero Fatalities in our transportation system. UDOT also uses connected vehicle technology to enhance mobility, with applications such as transit signal priority and snowplow preemption.

UDOT desires to contract with vendors that will provide an SCMS for our mature and growing connected vehicle deployment. All messages currently being transmitted by UDOT’s V2X system have a security certificate attached as part of the SCMS. These certificates acknowledge that the message is authentic and hasn’t been tampered with during transmission. The certificates are provided by ISS through a contract with Panasonic of North America, which is about to expire. UDOT envisions that the new SCMS system will consist of a cloud-based platform which provides security certificates for our V2X RSUs and OBUs. In addition, the system will provide tools for monitoring and managing security certificates.

V2X Hardware UDOT has been involved in planning for and deploying connected vehicle technology for almost 20 years and has functional V2X deployments that date back to 2017. Current deployments, using Cellular V2X (C-V2X) hardware operating in the 5.9GHz spectrum, span five counties in northern Utah and will reach many other locations in the state by mid-2025. A map of the deployment footprint, and information about other aspects of the V2X system, can be found at our website: transportationtechnology.utah.gov.

Field components of the current system include:

· C-V2X RSUs on 385 UDOT signalized intersections.

· C-V2X RSUs on 46 Orem City and Logan City signalized intersections.

· C-V2X RSUs at 92 locations along interstate or rural, non-signalized roadways.

· C-V2X On-Board Units (OBUs) on 421 UDOT, UTA and Orem fleet vehicles:

· 133 UDOT snowplows and fleet vehicles,

· 215 Utah Transit Authority buses, and

· 73 Orem City emergency vehicles, snowplows, and fleet vehicles.

Field components that are currently being added to the system, with an expected completion date of mid-2025, include:

· C-V2X RSUs on 300 UDOT signalized intersections.

· C-V2X RSUs at 37 locations along interstate or rural, non-signalized roadways.

· C-V2X OBUs on 178 UDOT, Connect Transit, and Logan City fleet vehicles.

· 17 UDOT snowplows and fleet vehicles,

· 39 Connect Transit buses,

· 106 Logan City emergency vehicles, snowplows, and fleet vehicles, and

· 16 Wasatch Fire District emergency vehicles.

Current and in-progress deployments consist of the following brands of hardware:

· 304 Kapsch RSUs

· 556 Commsignia RSUs

· 348 Ficosa OBUs

· 251 Commsignia OBUs

· 2 Cohda OBUs being used for intersection testing.

The Ficosa OBUs request new certificates through a cellular connection. The Commsignia OBUs request new certificates through a WiFi connection at their overnight parking location.

By early 2026, an additional 600 RSUs and 215 OBUs will be installed in the system as part of a federal grant program, Accelerating V2X Deployment: Connecting the West.

Typical roadside installations include an RSU and a power-over-ethernet fiber switch. All RSU installations are connected to the UDOT fiber network. RSU installations at signalized intersections also include a Signal Command Module, a single-board computer with application and processing software that interfaces with the traffic signal controller.

In a few cases, roadside installation also includes LiDAR technology to detect presence of vulnerable road users. The LiDAR data is used by the RSU to create an SDSM message.

In-vehicle installations include an OBU, and in many cases, an On-board Processor, a single-board computer with application and processing software and a connection to various on-board systems, including, in some cases, the vehicle CAN bus.

Applications and Messages UDOT’s V2X system supports a variety of applications, including:

· Transit Signal Priority for buses that are behind schedule

· Signal Preemption for snowplows that are actively plowing snow

· Signal Preemption for emergency vehicles responding to emergency events

· Driver warnings for sharp curves, slick roads, high wind, disabled vehicles, and variable speed limits

· Driver warnings (in development) for work zones, lanes and roads closed, crashes, and other events To support these applications, the V2X system sends and receives the following standard messages, as defined by SAE J2735 and related standards:

· Signal Phase and Timing (SPaT). This data is generated by the signal controller and is assembled into the proper message format in the SCM.

· MAP. These are created using the USDOT MAP tool, and other tools, and stored in the SCM for forwarding.

· Basic Safety Message (BSM). Generated on board the vehicles, this message includes basic information created by the OBU GPS system and, in some cases, additional data gleaned from the vehicle’s CAN bus.

· Signal Request Message (SRM). Generated by the OBU and the SCM on the vehicle to request signal priority or preemption for vehicles that meet certain criteria (lateness for transit, emergency vehicle lights operating for emergency vehicles, plowing snow for snowplows); received by the RSU and processed by the SCM to send the appropriate request to the signal controller.

· Signal Status Message (SSM). Generated by the SCM to confirm the receipt of the SRM.

· Traveler Information Message (TIM). Generated by the V2X Management System (in the cloud) and sent to the RSU for broadcast to the OBU to warn drivers of various road conditions and events.

· Radio Technical Commission for Maritime Services message (RTCM), a GPS correction message broadcast at a limited number of intersections. Created by the SCM using GPS correction data obtained from a state network of servers and sent by the RSU to the vehicle OBU. A few SCMs have an added chip which serves as an RTCM base station.

· Sensor Data Sharing Message (SDSM). This message is created in the RSU based on the LiDAR data to report the location of vulnerable road users at the intersection.

Data generated in the V2X System is forwarded from the roadside across UDOT fiber to the cloud-based V2X Maintenance and Management System for storage and processing. The current V2X Maintenance and Management system, Cirrus by Panasonic, will be replaced through a separate procurement process in the summer of 2025.

System Requirements The vendor shall provide and implement a comprehensive Connected Vehicle Security Certificate Management System (CV SCMS) that includes the following:

1. Vendor Requirements

· To be considered for this project, vendors must demonstrate the following qualifications:

· Proven experience in developing and deploying digital certificate management systems for connected vehicle environments based on relevant industry standards (ISO, SAE, NIST, etc.) related to connected vehicle cybersecurity.

· Demonstrated capability to design scalable, secure, and high-performance SCMS systems.

· Demonstrated ability to integrate with existing vehicle communication protocols and third-party systems.

· Vendor shall maintain all state data in data centers operating in the United States and shall perform all vendor services involving access to state data from within the United States, per Attachment A, Utah IT Terms and Conditions, Section 26, paragraphs d and k.

· Vendor shall identify potential risks with this project and propose mitigations to those risks.

· Vendor shall begin work within 14 calendar days after post-award project kick-off meeting.

2. General System Requirements

· Vendor shall be responsible for configuration of the system to support UDOT’s connected vehicle operations.

· Vendor shall maintain a secure administrative interface.

· System shall support multiple root Certificate Authorities (CAs) via the elector mechanism, but there could be as few as one CA (such as during initial deployment).

· Costs offered for CV SCMS services shall include all project management and coordination meetings with UDOT staff and team.

· Costs offered for CV SCMS services shall include routine system updates (software patches and updates) including those that are scheduled, ad hoc, and event-driven updates, but shall not necessarily include UDOT-requested feature enhancements.

· Vendor shall provide a Service Level Agreement (SLA) to include, at a minimum:

· Monthly up-time of at least 99.9%

· Online incident response time of one hour to respond to a request for assistance and one day to resolve the incident.

· Vendor shall accept liability for damages caused by an exposure of the private key for the Certificate Authority, including all certificates impacted by such an event.

· Vendor shall provide results of interoperability testing performed during an industry event, such as an OmniAir Plugfest.

· Within six months after the publishing of CTI 4501 v02, vendor shall provide UDOT an OpOrgID (OID) under its base arc.

3. Certificate Issuance and Management

· The system shall have the capability to issue digital certificates to V2X end entities, including onboard units (OBUs), roadside units (RSUs), backend systems at the Traffic Operations Center, and related systems.

· System shall support initial enrollment (or reenrollment) / provisioning of end entity devices with certificates, including a private key, an Enrollment Certificate, and other features necessary for the full operation of the devices within the CV SCMS.

· UDOT recognizes that “support” of enrollment means that the UDOT team will perform the work.

· Vendor shall provide UDOT and their team, including designated consultants, a detailed procedure and workflow for the initial bootstrapping and enrollment / provisioning of end entity devices.

· Vendor shall provide two-days of on-site support and up to 40 hours of remote support for initial enrollments / reenrollments.

· System shall provide Pseudonym, Identity, and Application certificates.

· System shall support the applications and messages shown in this Scope of Work with appropriate PSID and SSP and shall provide security profiles for these applications.

· System shall be able to scale as the number of end entities increases, supporting thousands of devices.

· System shall be compatible with RSU and OBU devices currently in the UDOT system, as described in the Scope of Work. Vendor shall indicate which other RSU and OBU hardware they are currently compatible with.

· System shall provide secure storage and retrieval of certificates with automated renewal processes and a process for certificate top-off from an SCMS server.

· System shall provide other key files associated with SCMS operation such as a Certificate Trust List (CTL) and Certificate Revocation List (CRL).

· SCMS Manager is currently developing a policy whereby connected intersections can be tested to demonstrate compliance with CTI 4501; an intersection which is compliant will be considered “validated” and an enrollment certificate with certain SSPs will indicate that the intersection has been validated. Within a year of the implementation of this policy, system shall conform to this policy and enable the use of validated messages at intersections which meet the requirements.

4. Certificate Validation and Authentication

· System shall provide real-time, low latency validation of certificates to verify authenticity and prevent unauthorized access.

· System shall support misbehavior identification and certificate revocation in accordance with SAE J3287 at a future date when SCMS Manager policies are updated and adopted.

· System shall support enrollment of revoked or malfunctioning devices after restoration of functionality.

5. Cybersecurity Compliance

· System shall support Public Key Infrastructure (PKI) standards for certificate management.

· The system shall ensure compliance with industry cybersecurity standards and frameworks, including IEEE 1609.2.1, ISO/SAE 21434, UNECE WP.29, NIST SP 800-53, and applicable portions of CTI 4501 that are reasonably achievable at this time.

· System shall implement industry best practices for secure certificate management and cryptographic techniques.

· System shall support IPv4 and IPv6.

6. Interoperability of Security Certificates

· System shall support interoperability across multiple root authorities, allowing trust to be established and broken as needed with no requirement for physical contact with enrolled devices as defined in IEEE 1609.2.1.

· System shall issue security certificates that are compatible/interoperable with other vendors’ SCMS systems as defined in IEEE 1609.2.1.

7. Integration with Existing Systems

· System should be able to interface with existing V2X maintenance and data management platforms and V2X communication infrastructure.

· If vendor proposes to enroll end entity devices with certificates that are not from ISS, vendor shall, prior to UDOT purchasing their certificate services, at no expense to UDOT:

· Provide a detailed interoperability test plan for approval by UDOT.

· Demonstrate interoperability of their certificates with current ISS-provisioned devices by enrolling 10 RSUs and 5 OBUs (selected by UDOT) with their certificates and causing those RSUs and OBUs to successfully interface with ISS-provisioned devices for a period of three weeks in accordance with the test plan.

· Provide a report of the results of the interoperability demonstration.

· UDOT will make the determination whether to accept the results of the demonstration or require further evidence of interoperability.

· Provide detailed instructions on how to replace ISS certificates on an end-entity device with Vendor’s certificates, if this process is different from the initial enrollment process.

8. User Interface and Reporting

· System shall provide a secure and intuitive user interface for system administrators to manage and monitor certificate statuses.

· System shall provide multiple-user access to the user interface to allow UDOT to supply certificates to end entity devices owned by other agencies within the state while restricting access for those agencies to their segment of the certificates and data.

· System should provide comprehensive reporting tools for tracking certificate lifecycles, renewals, and security events.

· System should support the creation of audit logs and event history for compliance purposes.

· System should support reporting that will provide information on operational and maintenance activities, device performance and outages.

· System shall provide an API which allows an external system to query the latest data for end entity SCMS health.

9. Training and Support

· Vendor shall provide comprehensive training materials for administrators and end-users regarding the SCMS implementation, operation, and integration within UDOT’s Connected Vehicle and ITS architecture.

· Vendor shall provide ongoing technical support and system maintenance, including updates and patches.

· Vendor shall provide a description of their ongoing support and maintenance services, including typical response times, system update schedules, and service-level agreements (SLAs).

· UDOT may request additional support, including system consultation, participation in meetings or workshops, etc. Cost for these efforts will be negotiated subsequent to the execution of the primary contract based on lump sum or hourly rates.

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