Electronic fee collection - EETS gap analysis and proposed standards roadmap

This document provides an EETS gap analysis with the aim to identify the need for new or updated standards to provide an enhanced support of the recast of the EU EETS legislation [29], [31], [32].

Elektronische Gebührenerhebung - EETS Lückenanalyse und vorgeschlagener Handlungsplan für die Normierung

Perception de télépéage - Analyse des lacunes du SET et feuille de route des normes proposées

Elektronsko pobiranje pristojbin - Analiza vrzeli EETS in predlagan akcijski načrt za standardizacijo

General Information

Status
Published
Publication Date
06-Dec-2020
Technical Committee
Current Stage
6060 - National Implementation/Publication (Adopted Project)
Start Date
10-Nov-2020
Due Date
15-Jan-2021
Completion Date
07-Dec-2020

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SLOVENSKI STANDARD
SIST-TP CEN/TR 17546:2021
01-januar-2021

Elektronsko pobiranje pristojbin - Analiza vrzeli EETS in predlagan akcijski načrt

za standardizacijo
Electronic fee collection - EETS gap analysis and proposed standards roadmap
Elektronische Gebührenerhebung - EETS Lückenanalyse und vorgeschlagener
Handlungsplan für die Normierung

Perception de télépéage - Analyse des lacunes du SET et feuille de route des normes

proposées
Ta slovenski standard je istoveten z: CEN/TR 17546:2020
ICS:
01.120 Standardizacija. Splošna Standardization. General
pravila rules
35.240.60 Uporabniške rešitve IT v IT applications in transport
prometu
SIST-TP CEN/TR 17546:2021 en,fr,de

2003-01.Slovenski inštitut za standardizacijo. Razmnoževanje celote ali delov tega standarda ni dovoljeno.

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CEN/TR 17546
TECHNICAL REPORT
RAPPORT TECHNIQUE
October 2020
TECHNISCHER BERICHT
ICS 35.240.60
English Version
Electronic fee collection - EETS gap analysis and proposed
standards roadmap

Perception de télépéage - Analyse des lacunes du SET Elektronische Gebührenerhebung - EETS

et feuille de route des normes proposées Lückenanalyse und vorgeschlagener Handlungsplan

für die Normierung

This Technical Report was approved by CEN on 4 October 2020. It has been drawn up by the Technical Committee CEN/TC 278.

CEN members are the national standards bodies of Austria, Belgium, Bulgaria, Croatia, Cyprus, Czech Republic, Denmark, Estonia,

Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Latvia, Lithuania, Luxembourg, Malta, Netherlands, Norway,

Poland, Portugal, Republic of North Macedonia, Romania, Serbia, Slovakia, Slovenia, Spain, Sweden, Switzerland, Turkey and

United Kingdom.
EUROPEAN COMMITTEE FOR STANDARDIZATION
COMITÉ EUROPÉEN DE NORMALISATION
EUROPÄISCHES KOMITEE FÜR NORMUNG
CEN-CENELEC Management Centre: Rue de la Science 23, B-1040 Brussels

© 2020 CEN All rights of exploitation in any form and by any means reserved Ref. No. CEN/TR 17546:2020 E

worldwide for CEN national Members.
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Contents Page

European foreword ............................................................................................................................................ 3

Introduction .......................................................................................................................................................... 4

1 Scope .......................................................................................................................................................... 6

2 Normative references .......................................................................................................................... 6

3 Terms and definitions ......................................................................................................................... 6

4 Abbreviated terms ................................................................................................................................ 7

5 EETS legislation and relevant standards ...................................................................................... 8

5.1 Introduction ............................................................................................................................................ 8

5.2 Standards supporting the EETS definition .................................................................................. 8

5.2.1 Generalities ............................................................................................................................................. 8

5.2.2 Requirement standards ...................................................................................................................... 9

5.2.3 Test standards...................................................................................................................................... 11

6 Gap analysis .......................................................................................................................................... 12

6.1 Technical elements of the EETS legislation ............................................................................... 12

6.1.1 Introduction .......................................................................................................................................... 12

6.1.2 General requirements ....................................................................................................................... 12

6.1.3 Front end requirements: DSRC tolling ........................................................................................ 13

6.1.4 Front end requirements: Autonomous tolling ......................................................................... 16

6.1.5 Front end requirements: ANPR tolling ....................................................................................... 17

6.1.6 Back end requirements .................................................................................................................... 18

6.1.7 Testing and certification requirements ...................................................................................... 21

6.2 Main findings ........................................................................................................................................ 23

6.2.1 Introduction .......................................................................................................................................... 23

6.2.2 Filling the gaps (bottom-up analysis) .......................................................................................... 23

6.2.3 Issues with the EETS legislation (bottom-up analysis) ......................................................... 24

6.2.4 Additional considerations (top-down analysis) ...................................................................... 25

7 Proposed EETS standards roadmap ............................................................................................. 25

7.1 Introduction .......................................................................................................................................... 25

7.2 Updating existing standards ........................................................................................................... 26

7.3 New standardization topics ............................................................................................................ 26

7.4 Overall roadmap ................................................................................................................................. 27

Annex A (informative) EETS legal provisions and standards ............................................................ 28

Bibliography ....................................................................................................................................................... 33

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European foreword

This document (CEN/TR 17546:2020) has been prepared by Technical Committee CEN/TC 278

“Intelligent Transport Systems”, the secretariat of which is held by NEN.

Attention is drawn to the possibility that some of the elements of this document may be the subject of

patent rights. CEN shall not be held responsible for identifying any or all such patent rights.

This document has been prepared under a mandate given to CEN by the European Commission and the

European Free Trade Association.
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Introduction
Historical background

From 2004 to 2019, two main European legislative acts were ruling the regulated interoperable tolling

service in Europe, the so-called European Electronic Tolling Service (EETS):

1. the Directive 2004/52/EC of the European Parliament and European Council of the 29th of April,

[28]
2004, concerning the interoperability of tolling systems within the Community ;

2. the Decision of the European Commission of the 6th of October 2009 regarding the definition of the

[29]
European tolling service and its technical aspects (2009/750/EC) .

The main objective of the above acts was to set up the conditions to ensure compatibility and

interoperability of the different electronic tolling systems in the European Union (EU). The acts apply to

road tolling, as well as tunnels, bridges and ferries.
Key aspects of the legislation were:
1. creation of a European Electronic Tolling Service (EETS);

2. obligation for all new tolling systems (installed after the 1st of January 2007) to support the

technologies listed in the legislation, i.e. 5,8 GHz dedicated short-range communication (DSRC),

global navigation satellite system (GNSS, including GPS and GALILEO) and Global System for Mobile

communications-General Packet Radio Service (GSM-GPRS); systems may be DSRC-based or GNSS-

based (autonomous tolling systems) schemes;

3. obligation for all toll service providers to provide their users with the possibility to obtain on-board

devices that support all technologies above;

4. possibility for users to have a single contract with a service provider that gives access to all electronic

tolling systems in Europe;

5. obligation for all toll chargers to give not-discriminatory access to their tolling domains for all

European toll service providers.
Tuning the EETS service definition: the new legislation

After the introduction of the European legislation, the development of the EETS went on slower than

expected, due to commercial, procedural and legislative aspects that were not initially considered.

[44]

Some pilots and European projects (among all the REETS – Regional EETS ) had shown that a number

of standards ought to added to and become part of the European EETS legislation, in order to achieve a

more solid interoperable framework.

While, with lengthy procedures, a core of EETS was beginning to take shape, with Service Providers being

accredited in a number of Toll Domains and registered in their respective member state of the EU, the

European Commission decided that it was time to revise (recast in EU legal parlance) the Directive. The

revision process, a rather lengthy process, eventually led to a recast Directive (EU) 2019/520 of the 19th

[30]

of March 2019 . The new Directive gives more flexibility in the on-board equipment (OBE) (possibility

for light weight vehicles to mount a DSRC-only device, possibility of a “scattered” device that possibly

uses already existing components in the vehicle, …), more flexibility for accreditation and registration as

European Toll Service Provider, provides for cross-border enforcement, and empowers the EU

Commission with the ability of adopting Delegated and Implementing Acts to refine the technical contents

of the “new” EETS.
New main characteristics of the new EETS legislation are:
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• addition of cross-border enforcement;
• separation of Light Weight Vehicles and Heavy Weight Vehicles;
• clarification of responsibilities of the EETS providers;
• clarification of responsibilities of the Toll Chargers;
• removal of market entry barriers in order to promote competition;
• addition of automatic number plate recognition (ANPR) technologies.
[31]

The Commission adopted two Acts, one named Commission Implementing Regulation , the second one

[32]

named Commission Delegated Regulation , that were adopted at the end of 2019, to further define the

technical and procedural characteristics of the EETS. These Acts, among others, name and prescribe a

number of CEN standards to be used for the EETS.

This document examines the requirements expressed in the new European legislation for EETS

(including mandated CEN/ISO standards) and maps these requirements to the current CEN EFC

standards, with the aim to identify gaps in the standardized offer (standards to be developed/enhanced)

and also perceived inconsistencies and weaknesses in the current version of the European legislation. A

roadmap is then proposed to fill the discovered gaps, whilst noting that it is not CEN's role to develop a

turnkey solution for the EETS.
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1 Scope

This document provides an EETS gap analysis with the aim to identify the need for new or updated

[29], [31], [32]

standards to provide an enhanced support of the recast of the EU EETS legislation .

2 Normative references
There are no normative references in this document.
3 Terms and definitions

ISO and IEC maintain terminological databases for use in standardization at the following addresses:

• IEC Electropedia: available at http://www.electropedia.org/
• ISO Online browsing platform: available at http://www.iso.org/obp
For the purposes of this document, the following terms and definitions apply.
3.1
back end
part of a back-office system interfacing to one or more front ends (3.9)
[SOURCE: ISO/TS 17573-2:2020, 3.22]
3.2
certification

act of providing an official document, as proof that something has happened or been done

3.3
toll service provider
legal entity providing toll services on one or more EETS domains (3.8)
[SOURCE: ISO/TS 17573-2:2020, 3.206]
3.4
toll charger
entity which levies toll for the use of vehicles in a toll domain
[SOURCE: ISO/TS 17573-2:2020, 3.194]
3.5
European Electronic Toll Service
EETS

toll service provided under a contract on one or more EETS domains (3.8) by an EETS provider (3.6) to an

EETS user (3.7)
3.6
EETS provider

entity which, under a separate contract, grants access to the EETS (3.5) to an EETS user (3.7), transfers

the tolls to the relevant toll charger, and which is registered by its Member State of establishment

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3.7
EETS user

natural or legal person who has a contract with an EETS provider (3.6) in order to have access to the EETS

(3.5)
3.8
EETS domain

road, road network, structure, such as a bridge or a tunnel, or ferry, where tolls are collected using an

electronic road toll system
3.9
front end

part of a tolling system consisting of on-board equipment (OBE) (3.10) and possibly a proxy where road

tolling information and usage data are collected and processed for delivery to the back end

[SOURCE: ISO/TS 17573-2:2020, 3.85]
3.10
on-board equipment
OBE

all required equipment on-board a vehicle for performing required electronic fee collection (EFC)

functions and communication services
[SOURCE: ISO/TS 17573-2:2020, 3.126]
3.11
notified body

organisation that has been designated by a member state to assess the conformity of certain products,

before being placed on the E.U. market
4 Abbreviated terms
For the purposes of this document, the following abbreviated terms apply.
ADU Application data unit (EN ISO 14906)
ANPR Automatic Number Plate Recognition
ASN.1 Abstract syntax notation one (ISO/IEC 8824-1)
CCC Compliance check communication
DSRC Dedicated short-range communication (EN ISO 14906)
EETS European Electronic Tolling Service
EFC Electronic fee collection (EN ISO 14906)
GNSS Global Navigation Satellite System
GPRS General Packet Radio Service
GSM Global System for Mobile communication
HMI Human Machine Interface
LAC Localization augmentation communication
OBE On-board equipment (EN ISO 14906)
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OJEU Official Journal of the European Union
PICS Protocol implementation conformance statement
REETS Regional EETS
RSE Roadside equipment (EN ISO 14906)
TC Toll Charger
TSP Toll Service Provider
5 EETS legislation and relevant standards
5.1 Introduction

This clause is to list the standards currently referenced in the EETS legislation. Standards are divided

into requirement and test standards. The information contained in this clause forms the basis for the gap

analysis in Clause 6.

The EETS legislation lists requirements for all actors in the European Tolling Service, including the Toll

Chargers, the Toll Service Providers, and the certification entities (e.g. Notified Bodies). In the

requirement statements, a number of International standards are cited. The following clauses list the

standards exactly as they are referred to in the EETS legislation, independent of their latest status and

versions. This type of information is then needed in Clause 6 for the gap analysis. It is noteworthy that

not all EETS required functionalities are covered by international standards, nor all existing standards

covering EETS functionalities are quoted in the EETS legislation. This will be dealt with in Clause 6, as

part of the Gap analysis.

Conformance testing is dealt with in the Annex III of the Implementing Act, which states that conformity

assessment can be done by either one of the following two procedures as defined by Decision No

[45]
768/2008/EC :
a) internal production control (module A);

b) EU type examination (Module B), followed by conformity to type based on internal production

control.

Test standards for all requirement standards are cited in the EU legislation and may be used to evaluate

conformity. Its usage, however, is not mandatory.
5.2 Standards supporting the EETS definition
5.2.1 Generalities

The EETS is defined by requirements (technical specifications) and tests (certification specifications)

functionalities.

As far as technical specifications are involved, the EETS foresees three types of electronic tolling, namely

based on dedicated short-range communication (DSRC), autonomous, and automatic number plate

recognition (ANPR) technologies.

Standards applying to both requirements and tests functionalities, and mentioned in the legislation, are

listed in the following clauses.
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5.2.2 Requirement standards

For DSRC-based tolling systems tolling transactions, the EETS considers two alternative requirement

standards, as shown in Figure 1:
• EN 15509:2014, that can be used in all EETS systems in Europe;
• ETSI ES 200 674-1 V2.4.1, that may alternatively be used in Italy.
Figure 1 — Standards supporting tolling transactions in DSRC systems

For checking conformity of OBUs and enhancing location coordinates in autonomous tolling domains, the

EETS considers two requirement standards, as shown in Figure 2:

• EN ISO 12813:2015 to check conformity and functioning of OBE devices respectively

EN ISO 12813:2019 to retrieve vehicle classification parameters from OBE devices
• EN ISO 13141:2014 to enhance location information
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Figure 2 — Standards supporting CCC and LAC DSRC interactions in autonomous tolling systems

For all types of tolling systems, the EETS considers the standard CEN/TS 16986:2016 and CEN/TS

16986:2016/AC:2017 to exchange tolling related information between toll chargers and toll service

providers, as shown in Figure 3.
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Figure 3 — Standard supporting back-office communication for all types of tolling systems

Parameters to be used for vehicle classification for tolling are defined in EN ISO 14906.

5.2.3 Test standards

As mentioned in 5.1, test standards are not mandatory. However, the following test standards may be

applied for conformity evaluation of implementation to the EETS interface requirements:

• EN 15876-1:2016 to evaluate implementation for conformity to EN 15509:2014 (“CEN DSRC tolling

transactions”)

• ETSI TS 102 708 to evaluate implementation for conformity to ES 200 674-1 (“ETSI DSRC tolling

transactions”)

• EN ISO 13143-1:2016 to evaluate implementation for conformity ISO 12813:2015 (“compliance

checking transactions in autonomous tolling schemes”)

• EN ISO 13140-1:2016 to evaluation implementation for conformity to ISO 13141:2015 (“localisation

augmentation in autonomous tolling schemes”)

No test standard for back office interface is mentioned, although the CEN/TS 17154 (parts 1 and 2) was

published on June 6, 2019.
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6 Gap analysis
6.1 Technical elements of the EETS legislation
6.1.1 Introduction

Requirements and regulations in the EETS legislation can be organized by different criteria. As the main

scope of this document is to address technical standards, the following clauses introduce the technical

elements of the EETS legislation by technology domains, plus one category of general requirements.

Technology domains in the EETS refer to three main categories:

(a) Front end technologies i.e. those technologies used in the interactions between vehicles and fixed

equipment for the tolling categories mentioned in the EETS legislation: DSRC-, GNSS and ANPR-based

schemes.

(b) Back end technologies, i.e. those technologies used for the transfer of tolling related information

between the back-end systems of toll chargers and toll service providers.

(c) Testing and certification technologies, i.e. those technologies used to verify and certify

interoperability constituents.

The tables contained in the following clauses show the mapping between EETS requirements and

standards. For each requirement, together with its source in the legislation, one or more standards

fulfilling the requirement (if any) are cited, as well as an indication of where and how that standard is

quoted in the same EETS legislation. It is important to note that:

1. standards that support a given requirement are cited undated: this means that the latest version of

the standard is referred to;

2. references in the EETS legislation (when present) are always dated: it may thus happen that a

requirement that is satisfied by the latest version of a given standard is not in fact satisfied by the

version cited in the legislation.

The presence, as well as the suitability, of a referenced standard in the legislation, or the lack of a standard

that fulfils a given requirement are listed and analysed in detail in 6.2.
Requirements listed in the tables in the following subclauses:
1. are sequentially numbered (column 1);
2. are spelled-out from the relevant legislation document (column 2);
3. are referred to in the relevant legislation document (column 3);

4. are referred to their implementation in the same legislation, by citing their reference (column 4) and

the referred standard document in the legislation, if any (column 5);

5. are satisfied by an existing ISO/ETSI/CEN standard, independent of whether that standard is cited in

the legislation or not (column 6).

It may happen that the same requirement applies for different categories of technological domains: in

this case, that requirement is repeated in all relevant clauses.
6.1.2 General requirements

General requirements listed in the following Table 1 are valid for all technology domains, and mainly

relate to vehicle classification parameters and their possible retrieval by means of a DSRC interaction.

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Table 1 — EETS legislation general requirements
Req. Requirement Requirement Implementation in the EETS legislation Standard(s)
N° reference supporting the
Clause Standard reference
requirement
1 The parameters used to Delegated Delegated EN ISO 14906:2018 EN ISO 14906
classify vehicles for Regulation, article 2 regulation,
determining tolls shall Annex I comma
comply with the 2.1 b
requirements provided
for in Annex I of this
Delegated Regulation.
2 A toll charger may use Delegated Delegated EN 15509:2014 EN 15509
vehicle classification regulation, Annex I regulation,
ETSI ES 200 674-1 ETSI ES 200 674-1
parameters according to 2.1 comma 1 and 2 Annex I 2.1
V2.4.1
EN ISO 12813
at least one of the comma 3
EN ISO 12813:2019
following provisions:
a) any vehicle
classification
parameter that can
be measured by its
roadside
equipment
b) the vehicle
parameters that are
listed in vehicles
registration
documents1 and
standardized in
Clause 8.4 of
EN ISO 14906:2018
3 When circulating in a toll Delegated Implementing EN 15509:2014 EN 15509
domain, vehicle on- regulation, Annex I regulation,
ETSI ES 200 674-1 ETSI ES 200 674-1
board equipment must 2.2 Annex I comma 1
V2.4.1
EN ISO 12813
be able to communicate
EN ISO 12813:2015
the on-board equipment
status information and,
where applicable, its
vehicle classification
parameters to the toll
declaration monitoring
equipment of the toll
charger, as defined in
Annex I of Commission
Implementing
Regulation (EU)
2020/204
6.1.3 Front end requirements: DSRC tolling
[30] [31] [32]

Directive 2019/520 , together with its related implementing regulation and delegated regulation ,

require two alternative set of standards to perform a tolling interaction in DSRC based toll domains,

namely, the EN 15509 and the ETSI ES 200 674-1. In addition to that, requirements on security, which

can be fulfilled by EN ISO 19299, and requirements on OBE configuration, which can be fulfilled by CEN

ISO/TS 21719, are specified. Table 2 lists the requirements for DSRC based toll domains.

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Table 2 — EETS front end requirements for DSRC tolling
Req. Requirement Requirement Implementation in the EETS Standard(s)
N° reference legislation supporting the
requirement
Clause Standard
Reference
4 When circulating in a toll Delegated Implementing EN 15509:2014 EN 15509
domain, vehicle on-board Regulation, Regulation,
ETSI ES 200 674-1 ETSI ES 200 674-1
equipment must be able to Annex I, Clause 2.2 Annex I comma 1.
V2.4.1
communicate the on-board
Delegated EN 15509:2014 EN 15509
equipment status information
and, where applicable, its Regulation,
ETSI ES 200 674-1 ETSI ES 200 674-1
Annex I,
vehicle classification
V2.4.1
Clause 2.1
parameters to the toll
declaration monitoring
equipment of the toll charger.
5 If an OBE is used, the OBE is Delegated Delegated EN 15509:2014 EN 15509
required only to support Regulation, Regulation,
ETSI ES 200 674-1 ETSI ES 200 674-1
storage and transmission of Annex I, Clause 2.1 Annex I,
V2.4.1
possible vehicle classification comma 4 Clause 2.1 comma
parameters that can be 4
retrieved from the OBE using
dedicated short-range
communication at 5,8 GHz as
defined by standards
EN 15509:2014 and ETSI
ES 200 674-1 V2.4.1;
6 EETS must provide security Delegated None N.A. EN ISO 19299
features relative to the Regulation,
protection of data stored, Annex II,
handled and transferred Clause 1.3.1
between stakeholders in the
EETS environment.
7 The on-board equipment must Delegated Implementing EN 15509:2014 EN 15509
enable toll chargers to identify Regulation, Regulation,
ETSI ES 200 674-1 ETSI ES 200 674-1
the responsible EETS provider. Annex II, Annex I comma 1.
V2.4.1
Clause 2.1.2
Delegated EN 15509:2014
Regulation,
ETSI ES 200 674-1
Annex I,
V2.4.1
Clause 2.1
8 EETS providers shall be Implementing None N.A. CEN ISO/TS 21719-1
responsible for fixed vehicle Regulation, Article
CEN ISO/TS 21719-2
classification parameters 2 comma 5
stored in on-board equipment
or in their back end.
9 Variable vehicle classification Implementing N.A. N.A. None
parameters, which can vary Regulation, Article
from trip to trip or within a trip, 2 comma 5
and are intended to be
introduced by in-vehicle
intervention shall be
configurable through an
appropriate human-machine
interface.
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Req. Requirement Requirement Implementation in the EETS Standard(s)
N° reference legislation supporting the
requirement
Clause Standard
Reference
10 EETS providers shall ensure Implementing Implementing EN 15509:2014 EN 15509
that toll chargers are able to Regulation, Article Regulation,
ETSI ES 200 674-1 ETSI ES 200 674-1
easily and unambiguously 4 comma 2 Annex I comma 1.
V2.4.1
detect whether a vehicle
Delegated EN 15509:2014
circulating on their EETS
Regulation,
domain requiring the use of an
ETSI ES 200 674-1
Annex I,
OBE and allegedly using EETS is
V2.4.1
Clause 2.1
actually equipped with a
validated and properly
functioning EETS OBE that
provides correct information.
11 EETS OBE shall provide a Implementing N.A. N.A. None
human-machine interface, that Regulation, Article
indicates to the user that the 4 comma 3
OBE is functioning properly,
and an interface for declaring
variable toll parameters and for
indicating the settings of those
parameters
12 As a minimum, standardized Implementing Implementing EN 15509:2014 EN 15509
roadside interfaces between Regulation, Annex I Regulation,
ETSI ES 200 674-1 ETSI ES 200 674-1
OBE and toll chargers’ fixed and comma 1 Annex I comma 1.
V2.4.1
mobile roadside equipment
Delegated EN 15509:2014
shall support:
Regulation,
ETSI ES 200 674-1
(a) Dedicated Short-Range
Annex I,
V2.4.1
Communication (DSR
...

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