Why don't we build some experimental infrastructure that is designed specifically for self driving vehicles?
I think the issue is that a dedicated test area will just never reflect the full set of problems you encounter in the real world, and for things like LED billboards it's going to be a lot cheaper to test in the real world than to buy and install your own. On the flip side, there's next to no money in developing "vehicle-dedicated infrastructure," so no one's that interested in testing on it exclusively.