I can see why you think that, but with Tesla's approach, FSD on "empty" roads is not trivial at all. When you say "empty," you're referring to other dynamic objects, but it's not at all trivial (Tesla's approach) to understand what objects are dynamic and/or relevant. For example, there are many cars parked on the road, all sorts of lights and objects, things that look like traffic lights, etc. V9 needs to understand and take into consideration all of these things as it's driving. Other FSD developers have likely concluded that it's "impossible" for them to deal with all these objects and decided to use HD-maps to label / hand verify which objects / lanes are relevant.
You are correct that it is probably not as trivial for Tesla but that is because of Tesla's vision-only approach. With vision-only, you have to do the entire perception, scene understanding, prediction, planning. So vision-only has to solve all FSD problems by itself. And if your vision is missing anything, it can problems which make FSD less safe. To be clear, I am not saying that vision-only FSD is impossible. But it is a lot harder IMO.
Yes, other AV companies use HD maps and other sensors like lidar and radar precisely for this reason. I don't think they consider it "impossible" without them. It's just that using HD maps and other sensors will make the job a whole lot easier and much more reliable. When it comes to "solving FSD" why wouldn't you make the job easier and more reliable? After all, the goal of FSD is to do it safely, consistently and reliably every time. IMO, you should use whatever tool can help you get the job done. Why would you not use every tool that can help you solve FSD? That is why I am a fan of using HD maps, lidar and radar in addition to cameras.
And we see the results: Waymo, Cruise, Zoox etc are very reliable at those "basic" tasks like picking lanes and not hitting other objects things that Tesla still has issues with the vision-only approach.
Plus, policy and planning are as relevant on empty roads as they are with other actors, as many of V9's issues stem from odd lane management or choices.
Policy and planning will be much simpler on empty roads than with other actors. On empty roads, you basically only need to stay in the lane, avoid static objects, follow basic traffic rules like stop lights and road signs, and make turns to follow the right lane path. But you don't have to worry about hitting other road users. But with other roads users, you have to add on top of that, predicting their paths, avoiding hitting other road users when lane changing or that might cut in front of you, deciding when to lane change to respect other road users, yielding to other road users etc...