Below are the first 10 and last 10 pages of uncorrected machine-read text (when available) of this chapter, followed by the top 30 algorithmically extracted key phrases from the chapter as a whole.
Intended to provide our own search engines and external engines with highly rich, chapter-representative searchable text on the opening pages of each chapter.
Because it is UNCORRECTED material, please consider the following text as a useful but insufficient proxy for the authoritative book pages.
Do not use for reproduction, copying, pasting, or reading; exclusively for search engines.
OCR for page R1
NCFRP
NATIONAL
COOPERATIVE
FREIGHT
RESEARCH
PROGRAM
REPORT 6
(Revised)
Sponsored by the
Research and
Innovative Technology
Impacts of Public Policy on the Administration
Freight Transportation System
OCR for page R2
TRANSPORTATION RESEARCH BOARD 2011 EXECUTIVE COMMITTEE*
OFFICERS
CHAIR: Neil J. Pedersen, Administrator, Maryland State Highway Administration, Baltimore
VICE CHAIR: Sandra Rosenbloom, Professor of Planning, University of Arizona, Tucson
EXECUTIVE DIRECTOR: Robert E. Skinner, Jr., Transportation Research Board
MEMBERS
J. Barry Barker, Executive Director, Transit Authority of River City, Louisville, KY
Deborah H. Butler, Executive Vice President, Planning, and CIO, Norfolk Southern Corporation, Norfolk, VA
William A.V. Clark, Professor, Department of Geography, University of California, Los Angeles
Eugene A. Conti, Jr., Secretary of Transportation, North Carolina DOT, Raleigh
James M. Crites, Executive Vice President of Operations, Dallas-Fort Worth International Airport, TX
Paula J. Hammond, Secretary, Washington State DOT, Olympia
Michael W. Hancock, Secretary, Kentucky Transportation Cabinet, Frankfort
Adib K. Kanafani, Cahill Professor of Civil Engineering, University of California, Berkeley
Michael P. Lewis, Director, Rhode Island DOT, Providence
Susan Martinovich, Director, Nevada DOT, Carson City
Michael R. Morris, Director of Transportation, North Central Texas Council of Governments, Arlington
Tracy L. Rosser, Vice President, Regional General Manager, Wal-Mart Stores, Inc., Mandeville, LA
Steven T. Scalzo, Chief Operating Officer, Marine Resources Group, Seattle, WA
Henry G. (Gerry) Schwartz, Jr., Chairman (retired), Jacobs/Sverdrup Civil, Inc., St. Louis, MO
Beverly A. Scott, General Manager and CEO, Metropolitan Atlanta Rapid Transit Authority, Atlanta, GA
David Seltzer, Principal, Mercator Advisors LLC, Philadelphia, PA
Lawrence A. Selzer, President and CEO, The Conservation Fund, Arlington, VA
Kumares C. Sinha, Olson Distinguished Professor of Civil Engineering, Purdue University, West Lafayette, IN
Thomas K. Sorel, Commissioner, Minnesota DOT, St. Paul
Daniel Sperling, Professor of Civil Engineering and Environmental Science and Policy; Director, Institute of Transportation Studies; and Interim
Director, Energy Efficiency Center, University of California, Davis
Kirk T. Steudle, Director, Michigan DOT, Lansing
Douglas W. Stotlar, President and CEO, Con-Way, Inc., Ann Arbor, MI
C. Michael Walton, Ernest H. Cockrell Centennial Chair in Engineering, University of Texas, Austin
EX OFFICIO MEMBERS
Peter H. Appel, Administrator, Research and Innovative Technology Administration, U.S.DOT
J. Randolph Babbitt, Administrator, Federal Aviation Administration, U.S.DOT
Rebecca M. Brewster, President and COO, American Transportation Research Institute, Smyrna, GA
Anne S. Ferro, Administrator, Federal Motor Carrier Safety Administration, U.S.DOT
LeRoy Gishi, Chief, Division of Transportation, Bureau of Indian Affairs, U.S.DOT
John T. Gray, Senior Vice President, Policy and Economics, Association of American Railroads, Washington, DC
John C. Horsley, Executive Director, American Association of State Highway and Transportation Officials, Washington, DC
David T. Matsuda, Deputy Administrator, Maritime Administration, U.S.DOT
Victor M. Mendez, Administrator, Federal Highway Administration, U.S.DOT
William W. Millar, President, American Public Transportation Association, Washington, DC
Tara O'Toole, Under Secretary for Science and Technology, U.S. Department of Homeland Security, Washington, DC
Robert J. Papp (Adm., U.S. Coast Guard), Commandant, U.S. Coast Guard, U.S. Department of Homeland Security, Washington, DC
Cynthia L. Quarterman, Administrator, Pipeline and Hazardous Materials Safety Administration, U.S.DOT
Peter M. Rogoff, Administrator, Federal Transit Administration, U.S.DOT
David L. Strickland, Administrator, National Highway Traffic Safety Administration, U.S.DOT
Joseph C. Szabo, Administrator, Federal Railroad Administration, U.S.DOT
Polly Trottenberg, Assistant Secretary for Transportation Policy, U.S.DOT
Robert L. Van Antwerp (Lt. Gen., U.S. Army), Chief of Engineers and Commanding General, U.S. Army Corps of Engineers, Washington, DC
Barry R. Wallerstein, Executive Officer, South Coast Air Quality Management District, Diamond Bar, CA
*Membership as of June 2011.
OCR for page R3
NATIONAL COOPERATIVE FREIGHT RESEARCH PROGRAM
NCFRP REPORT 6 (Revised)
Impacts of Public Policy on the
Freight Transportation System
ICF INTERNATIONAL
Fairfax, VA
DELCAN CORPORATION
Vienna, VA
CHEVAL RESEARCH
San Diego, CA
Subscriber Categories
Aviation · Environment · Freight Transportation · Highways · Marine Transportation · Motor Carriers · Pipelines ·
Railroads · Safety and Human Factors · Terminals and Facilities · Vehicles and Equipment
Research sponsored by the Research and Innovative Technology Administration
TRANSPORTATION RESEARCH BOARD
WASHINGTON, D.C.
2011
www.TRB.org
OCR for page R4
NATIONAL COOPERATIVE FREIGHT NCFRP REPORT 6 (Revised)
RESEARCH PROGRAM
America's freight transportation system makes critical contributions Project NCFRP-02
to the nation's economy, security, and quality of life. The freight ISSN 1947-5659
transportation system in the United States is a complex, decentralized, ISBN 978-0-309-21335-6
and dynamic network of private and public entities, involving all Library of Congress Control Number 2011932595
modes of transportation--trucking, rail, waterways, air, and pipelines. © 2011 National Academy of Sciences. All rights reserved.
In recent years, the demand for freight transportation service has
been increasing fueled by growth in international trade; however,
bottlenecks or congestion points in the system are exposing the COPYRIGHT INFORMATION
inadequacies of current infrastructure and operations to meet the
Authors herein are responsible for the authenticity of their materials and for obtaining
growing demand for freight. Strategic operational and investment written permissions from publishers or persons who own the copyright to any previously
decisions by governments at all levels will be necessary to maintain published or copyrighted material used herein.
freight system performance, and will in turn require sound technical Cooperative Research Programs (CRP) grants permission to reproduce material in this
guidance based on research. publication for classroom and not-for-profit purposes. Permission is given with the
understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA,
The National Cooperative Freight Research Program (NCFRP) is
FMCSA, FTA, RITA, or PHMSA endorsement of a particular product, method, or practice.
a cooperative research program sponsored by the Research and It is expected that those reproducing the material in this document for educational and not-
Innovative Technology Administration (RITA) under Grant No. for-profit uses will give appropriate acknowledgment of the source of any reprinted or
reproduced material. For other uses of the material, request permission from CRP.
DTOS59-06-G-00039 and administered by the Transportation Research
Board (TRB). The program was authorized in 2005 with the passage of
the Safe, Accountable, Flexible, Efficient Transportation Equity Act: A
Legacy for Users (SAFETEA-LU). On September 6, 2006, a contract to NOTICE
begin work was executed between RITA and The National Academies. The project that is the subject of this report was a part of the National Cooperative Freight
The NCFRP will carry out applied research on problems facing the Research Program, conducted by the Transportation Research Board with the approval of
the Governing Board of the National Research Council.
freight industry that are not being adequately addressed by existing
The members of the technical panel selected to monitor this project and to review this
research programs.
report were chosen for their special competencies and with regard for appropriate balance.
Program guidance is provided by an Oversight Committee comprised The report was reviewed by the technical panel and accepted for publication according to
of a representative cross section of freight stakeholders appointed by procedures established and overseen by the Transportation Research Board and approved
by the Governing Board of the National Research Council.
the National Research Council of The National Academies. The NCFRP
Oversight Committee meets annually to formulate the research The opinions and conclusions expressed or implied in this report are those of the
researchers who performed the research and are not necessarily those of the Transportation
program by identifying the highest priority projects and defining Research Board, the National Research Council, or the program sponsors.
funding levels and expected products. Research problem statements
The Transportation Research Board of the National Academies, the National Research
recommending research needs for consideration by the Oversight Council, and the sponsors of the National Cooperative Freight Research Program do not
Committee are solicited annually, but may be submitted to TRB at any endorse products or manufacturers. Trade or manufacturers' names appear herein solely
time. Each selected project is assigned to a panel, appointed by TRB, because they are considered essential to the object of the report.
which provides technical guidance and counsel throughout the life
of the project. Heavy emphasis is placed on including members
representing the intended users of the research products.
The NCFRP will produce a series of research reports and other
products such as guidebooks for practitioners. Primary emphasis will
be placed on disseminating NCFRP results to the intended end-users of
the research: freight shippers and carriers, service providers, suppliers,
and public officials.
Published reports of the
NATIONAL COOPERATIVE FREIGHT RESEARCH PROGRAM
are available from:
Transportation Research Board
Business Office
500 Fifth Street, NW
Washington, DC 20001
and can be ordered through the Internet at:
http://www.national-academies.org/trb/bookstore
Printed in the United States of America
OCR for page R5
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific
and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the
authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal
government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel
organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the
National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also
sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior
achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members
of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the
responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government
and, on its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the
Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of
science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in
accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the
National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and
the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine.
Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council.
The Transportation Research Board is one of six major divisions of the National Research Council. The mission of the Transporta-
tion Research Board is to provide leadership in transportation innovation and progress through research and information exchange,
conducted within a setting that is objective, interdisciplinary, and multimodal. The Board's varied activities annually engage about
7,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia,
all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal
agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individu-
als interested in the development of transportation. www.TRB.org
www.national-academies.org
OCR for page R6
COOPERATIVE RESEARCH PROGRAMS
CRP STAFF FOR NCFRP REPORT 6 (Revised)
Christopher W. Jenks, Director, Cooperative Research Programs
Crawford F. Jencks, Deputy Director, Cooperative Research Programs
William C. Rogers, Senior Program Officer
Charlotte Thomas, Senior Program Assistant
Eileen P. Delaney, Director of Publications
Hilary Freer, Senior Editor
NCFRP PROJECT 02 PANEL
Freight Research Projects
Allison L. C. de Cerreno, Port Authority of New York & New Jersey, New York, NY (Chair)
Keith J. Bucklew, Indiana DOT, Indianapolis, IN
Gloria J. Jeff, District of Columbia DOT, Washington, DC
David L. Knight, Great Lakes Commission, Ann Arbor, MI
Robert E. Martinez, Norfolk Southern Corporation, Norfolk, VA
James McCarville, Port of Pittsburgh Commission, Pittsburgh, PA
Paul E. Nowicki, BNSF Railway, Chicago, IL
M. J. Fiocco, RITA Liaison
Joedy W. Cambridge, TRB Liaison
OCR for page R7
FOREWORD
By William C. Rogers
Staff Officer
Transportation Research Board
NCFRP Report 6 (Revised): Impacts of Public Policy on the Freight Transportation System
describes the numerous ways that government policy decisions can affect the freight system
and, in turn, how understanding the differing concerns and priorities of governments is cru-
cial to better consideration of the potential impacts of public policy. Using interviews with
industry experts and an extensive review of documents, the research identifies current and
recent policy issues with potential freight system impacts, evaluates the magnitude of the
impacts, and assesses the extent to which the impacts were unexpected. Among the types of
impacts identified were (1) changes in costs and revenues to freight carriers and shippers,
(2) changes in freight volumes or shifts in mode, (3) changes in freight service quality, and
(4) changes to freight system operations and safety. The research will promote a better under-
standing at all levels of government of the complex relationships inherent in public policy and
foster appreciation for how public policies affect the freight transportation system.
The freight system is largely a private-sector enterprise, but public policy decisions have
major impacts on its development and operations. To a large degree, the system is invisible to
most Americans, and to most people, the phrase "transportation policy" is usually associated
with passenger transportation. Even for most transportation officials, the freight transportation
system receives little thought. Not only is the freight system little known or understood, there
is even less understanding of the many links through which policy actions, whether related to
transportation or not, can affect the movement of freight.
Under NCFRP Project 2, ICF International was asked to examine a wide range of public
policy decisions made since 1980, as well as some policies currently being debated but not
yet enacted, in order to reveal the numerous ways that government policy decisions have
affected (or could affect) the freight system. In addition to identifying freight system
impacts, the report also assesses the extent to which such impacts were unexpected by the
relevant decisionmakers. Lastly, the report considers the opportunity to improve public pol-
icy decisions through access to better information about freight system impacts.
Editor's Note: NCFRP Report 6 (Revised): Impacts of Public Policy on the Freight Trans-
portation System replaces NCFRP Report 6 of the same title, previously distributed. Revi-
sions have been made to two sections of the report, as follows:
· The section on "Truck Size and Weight Rules," in Chapter 4 has been corrected and
updated.
· The second paragraph of "Operations and Maintenance Policy," in Chapter 6 under
Summary Discussion, has been revised.
The assistance of C. Randal Mullett (Con-way, Inc.) and Dr. Michael Belzer (Wayne State
University) in this work is acknowledged with thanks.
OCR for page R8
CONTENTS
1 Summary
8 Chapter 1 Introduction
8 Definition of Policy
8 Methodology
9 Report Organization
10 Chapter 2 Overview of the Freight Transportation System
10 What Is Freight Transportation?
10 The Freight Transportation Modes
16 The Role of Government
18 Chapter 3 What Public Policies Can Affect the
Freight Transportation System?
18 Safety Policy
18 Security Policy
19 Land Use Policy
19 Environmental Policy
20 Energy and Climate Change Policy
20 Infrastructure Operations and Maintenance Policy
21 Infrastructure Investment Policy
21 Infrastructure Finance Policy
22 Trade Policy and Economic Regulation
24 Chapter 4 How Do Public Policies Affect the
Freight Transportation System?
24 Introduction
24 HOS Rules for Truck Drivers
26 HOS Rules for Train Operators
27 Truck Speed Limits and Speed Governor Rules
28 Aircraft Fuel Tank Flammability Rules
29 Restrictions on Locomotive Horns
30 TWIC for Ports and Inland Towboats
32 Alien Fingerprint Rules for Outbound Planes and Ships
32 Federal Emission Standards for Diesel Engines
33 California In-Use Truck Emission Standards
34 Idling Restrictions for Trucks and Locomotives
35 Restrictions on Port Drayage Trucks
36 Restrictions on Disposal of Port Dredging Spoil
37 Water Pollutant Discharge Rules for Vessels
38 International Air Emissions Regulations for Vessels
39 State Truck Route Restrictions
40 Local Policies to Oppose a Railroad Acquisition
OCR for page R9
41 Truck Size and Weight Rules
43 Level of Investment in Highway Infrastructure
44 Level of Investment in Inland Waterway Infrastructure
45 Highway Tolls and Other User Charges
46 Lockage Fees for Inland Waterways
46 Peak Pricing for Port Trucks
47 Peak Pricing for Airports
49 Chapter 5 Case Studies
49 Case Study 1: Local Land Use Policies Affecting Port Facilities
and Other Freight Terminals
54 Case Study 2: Local Truck Access and Parking Policies
58 Case Study 3: Air Cargo Screening Requirements
63 Case Study 4: State and Federal Climate Change Policies
72 Chapter 6 Conclusion
72 Availability of Information on Impacts of Policies
72 Decisionmaker Constituencies
73 Decision Context Framework
74 Summary Discussion
76 Conclusions
79 Appendix A Interviewees and Focus Group Participants
81 Appendix B Details on Impacts of Selected Policies
96 Appendix C Resources
102 Appendix D Abbreviations, Acronyms, and Initialisms
Note: Some of the figures and tables in this report have been converted from color to grayscale for printing. The
electronic version of the report (posted on the Web at www.trb.org) retains the color versions.
