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NCFRP
NATIONAL
COOPERATIVE
FREIGHT
RESEARCH
PROGRAM
REPORT 11
Sponsored by the
Research and
Innovative Technology
Truck Drayage Administration
Productivity Guide
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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
Adib K. Kanafani, Cahill Professor of Civil Engineering, University of California, Berkeley
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
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
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 March 2011.
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NATIONAL COOPERATIVE FREIGHT RESEARCH PROGRAM
NCFRP REPORT 11
Truck Drayage
Productivity Guide
THE TIOGA GROUP, INC.
Philadelphia, PA
UNIVERSITY OF TEXAS AT AUSTIN CENTER FOR TRANSPORTATION RESEARCH
Austin, TX
UNIVERSITY OF SOUTH CAROLINA, DEPARTMENT OF CIVIL & ENVIRONMENTAL ENGINEERING
Columbia, SC
Subscriber Categories
Environment · Marine Transportation · Motor Carriers
Research sponsored by the Research and Innovative Technology Administration
TRANSPORTATION RESEARCH BOARD
WASHINGTON, D.C.
2011
www.TRB.org
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NATIONAL COOPERATIVE FREIGHT NCFRP REPORT 11
RESEARCH PROGRAM
America's freight transportation system makes critical contributions Project NCFRP-14
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 978-0-309-15552-6
and dynamic network of private and public entities, involving all Library of Congress Control Number 2011924420
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
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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
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COOPERATIVE RESEARCH PROGRAMS
CRP STAFF FOR NCFRP REPORT 11
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 14 PANEL
John Isbell, Starboard Alliance, LLC, Manzanita, OR (Chair)
Jeannie Beckett, The Beckett Group, Gig Harbor, WA
Susan Bok, Los Angeles DOT, Los Angeles, CA
Thomas J. Ryan, Universal Truckload Services Inc., Saint Augustine, FL
Peter F. Swan, Pennsylvania State University - Harrisburg, Middletown, PA
Gary L. Whicker, J.B. Hunt Transport, Inc., Lowell, AR
Deborah Freund, FMCSA Liaison
Ken Adler, US Environmental Protection Agency Liaison
Joedy W. Cambridge, TRB Liaison
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FOREWORD
By William C. Rogers
Staff Officer
Transportation Research Board
NCFRP Report 11: Truck Drayage Productivity Guide presents a compendium of metrics
designed to give port authorities, marine terminal operators, drayage firms, and regional
transportation planners the tools to improve drayage productivity and capacity while
reducing emissions, costs, and port-area congestion at deepwater ports throughout the United
States. The guide is especially valuable because of the variety of evidence-based research
methods (including gate camera analysis, analysis of transaction databases, and automated
vehicle location geofencing techniques) used to identify and quantify the impact of ineffi-
ciencies in port drayage. The guide identifies and quantifies the impacts of bottlenecks, asso-
ciated gate processes, exceptions (trouble tickets), chassis logistics, congestion, and disruption
at marine container terminals. The impacts are described in terms of hours, costs, and emis-
sions that were estimated using the Environmental Protection Agency's DrayFLEET model.
The guide, with an accompanying CD-ROM containing the contractor's final report and
appendices (unedited by TRB), includes a set of recommendations for industry stakehold-
ers (i.e., shippers, receivers, draymen, marine terminal operators, ocean carriers, and port
authorities) designed to address inefficiencies, control costs, and reduce associated environ-
mental impacts of truck drayage.
Truck drayage is an integral part of the intermodal freight transportation system. The
most visible drayage sector is at seaports, where dray drivers spend a considerable amount
of time waiting to enter marine terminals and then often operate in non-productive ways
while inside the terminal gate. This leads to increased truck idling, resulting in air pollution
and congestion on the roads leading into terminals. Diesel emissions from idling trucks are
a serious health concern for communities adjacent to seaports, especially deepwater ports.
In 2006, the Waterfront Coalition held a series of workshops to examine this problem. The
conclusions reached at the workshops were that there are numerous inefficiencies in the
drayage system that could be corrected if the parties had a better understanding of the time
drayage truck drivers spend queuing to enter marine terminals and the locations of bottle-
necks in terminal operations. However, until now there has only been anecdotal informa-
tion from drayage truck drivers about the length of time they spend in queues outside the
terminal gates and the underlying causes of delay.
Under NCFRP Project 14, the Tioga Group, with the assistance of the University of Texas at
Austin Center for Transportation Research and the University of South Carolina Department
of Civil and Environmental Engineering, was asked to (1) use evidence-based research meth-
ods, as well as truck driver surveys, to identify and quantify bottlenecks within marine termi-
nals and (2) develop a guidebook that identifies potential metrics for truck drayage productiv-
ity and improvements that stakeholders can make to increase throughput, reduce emissions,
improve freight mobility, and increase driver productivity at marine terminals nationwide.
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CONTENTS
1 Chapter 1 Introduction
1 Overview of Port Drayage
3 Purpose and Organization of This Guidebook
4 Additional Port Drayage Resources
5 Chapter 2 The Port Drayage Process
5 Port Drayage Transactions
6 Marine Container Terminals
8 Uniform Intermodal Interchange & Facilities Access Agreement
8 Import Drayage Process
10 Export Drayage Process
10 Empty Return Process
11 Drayage Subprocesses
16 Chapter 3 Drayage Data and Information Sources
16 Data and Information Needs
17 Marine Terminal Information Systems
20 Drayage Company Data
22 Local and Regional Traffic Data
23 Surveys
28 Terminal Webcam Data Collection
31 Site Visits and Field Data Collection
31 Special Studies
33 Chapter 4 Drayage Problems and Solutions
33 Problem and Solution Matrix
33 Drayage Problems
36 Causes
36 Impacts
37 Solutions
38 Implications for Stakeholders
39 Chapter 5 Truck Turn Times
39 Terminal Versus Overall Turn Times
39 Turn Time Distributions
40 Turn Time Components
42 Causes of Long Turn Times
42 Suboptimization
44 Need for Buffers
45 Turn Time Solutions
47 Chapter 6 Marine Terminal Gate Queuing
47 Entrance Gate Issues
48 Driver/Truck Arrivals
49 Gate Queuing Solutions
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53 Chapter 7 Marine Terminal Gate Processing
53 Gate Capacity and Working Hours
54 Trouble Tickets
58 Gate Processing Solutions
64 Chapter 8 Container Chassis Supply Time and Delays
64 Chassis Logistics
65 On-Terminal Chassis Supply
65 Chassis Equipment Issues
67 Chassis Flips
68 Chassis Supply Solutions
71 Chapter 9 Marine Terminal Container Yard Congestion
71 Container Yard Congestion Impacts
72 Marine Terminal Disruptions
75 Container Yard Solutions
76 Chapter 10 Extra Drayage Trips
76 Dry Runs
76 Extra Empty Equipment Moves
80 Motor Carrier Shuttles and Drayoffs
80 Extra Trip Solutions
82 Chapter 11 Congestion on Streets and Highways
82 Port-Area and Port Access Congestion
86 Road and Highway Congestion Solutions
88 Chapter 12 Emissions and Cost Impacts
88 Overview
93 Data Sources
94 National Drayage Cost and Emissions Estimates
95 Impacts of Drayage Bottlenecks
97 Implications
Note: Many of the photographs, 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.
