However, there may be no other way to someday reach level 5 for general driving, other than to live with that middle zone for a while (keeping in mind that it’s already safer than humans driving alone) in order to conduct the training needed to reach level 5.
You don’t just wish, or regulate, level 5 into existence. You need to build toward it by having real systems deployed in the real world. Those real systems are not going to be level 5 at first or even level 3. This is where we are today, for general driving we only have level 2 and some level 3 if that.
Training is needed not only for the systems but also for drivers (including other drivers in traditional vehicles, they are also being trained unwittingly) and pedestrians, and regulators. Everyone is learning here. It’s not just an overnight, snap of the fingers kind of thing.