Guidebook for Understanding Urban Goods Movement (2012)

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52 This chapter suggests steps to help local planning officials evaluate goods movement issues in their urban areas. The process outlined is intended to assist planners in identifying impacts and determining whether existing regulations may be producing unintended consequences such as higher congestion, air or noise pollution, or lower competitive conditions for businesses. This section also presents ideas, solutions, and strategies for integrating freight into the planning process and changing local regulations to support efficient goods movement operations. Recognize the Political Environment As with any planning process, it is important to acknowledge that changes to policies, goals, and the regulations intended to implement them require buy-in by elected officials and the public. Affecting the impact of urban goods movements through both policy and regulatory changes begins with an understanding of the political complexity of moving goods into, and within, urban areas. Urban goods movement issues may create challenges for local elected officials and decision- makers who must balance competing demands between citizens who vote and businesses that create jobs. For example, if a business located in a residential area generates a significant amount of truck traffic, residents are likely to complain about trucks on residential streets. Even if the business provides jobs, voters from the neighborhood command attention. The economic effects from losing the company are less likely to be apparent to the voters in the neighborhood. As discussed earlier in this guidebook, as urban areas grow in population and density, demands for consumer goods grow as well. High urban populations and similarly high demands for goods and services are increasing levels of urban highway congestion. Modern supply chain management practices such as just-in-time delivery have become the norm for competing in the new economy. Regulations imposed by local agencies intended to combat congestion (e.g., time- of-day delivery restrictions) may have the unintended result of creating increased tension between freight delivery needs and the quality of life residents expect. An increasing number of consumers are ordering products via the Internet for home delivery, yet many do not want trucks in their neighborhood. Trucking companies and others responsible for delivering goods and services in urban areas find it increasingly challenging to operate in urban environments. Receiving Support or Authorization to Integrate Freight Analysis into the Planning Process The specific work conducted by most local governments and planning agency staff is based on answering questions or addressing issues, principles, or policies identified by local elected offi- cials and decisionmakers. Therefore, the decision, directive, or authority to conduct freight C H A P T E R 6 Putting It All Together: A Process for Evaluating and Addressing the Impacts

analysis may require that local elected officials or decisionmakers acknowledge urban goods movements as something that is important on which to spend staff time. In other words, to con- duct an evaluation and address freight issues, support—or a directive—may need to come from a local official to the staff. It is possible, that by reviewing this guidebook (or its overview), gain- ing insight from other freight-related materials, or hearing a presentation on freight, a local decisionmaker might direct staff to begin this work. If this is not the case, and the desire to conduct urban goods movement analysis comes from the staff, it is advisable to educate local decisionmakers and officials about the importance of freight and impacts and conflicts. Several resources are available to help with this. The overview to this guidebook is intended to capture the attention of local elected officials and decisionmakers. The associated CD-ROM includes several PowerPoint presentations that can be used to explain the importance of urban goods movements to local elected officials and decisionmakers. Although this support may not be critical to conducting a study, having their support is critical to integrating freight into the planning process and implementing needed changes identified through it. Get Organized Select a Project Manager As a first step in evaluating the impacts of urban planning codes, ordinances, regulations, and policies on urban goods movements, it is recommended that an appropriate staff person be des- ignated as a project manager. This individual will be responsible for all actions, activities, and deliverables described in the process outline that follows. Their first step will be to determine the scope, timeframe, tasks and deliverables expected. A helpful resource for the project manager may be NCHRP Report 570: Guidebook for Freight Policy, Planning, and Programming in Small- and Medium-Size Metropolitan Areas (Cambridge Systematics, Inc. et al. 2007). Contact Local MPO The project manager should contact the local MPO or state DOT. Many MPOs and DOTs now employ freight planners who can provide information, contacts, and additional technical assistance for this effort. Network with Industry One of the most important activities the project manager should undertake when attempting to initiate changes affecting the businesses involved in delivering or receiving goods and services, is to build relationships. Planning staff assigned to address goods movement issues should attend industry meetings (e.g., local roundtable meetings of the Council of Supply Chain Management Professionals), get involved in local Chamber of Commerce activities, etc. Building relationships and communicating the issues that are being addressed are the first steps toward building trust. This is discussed more in the following section on field surveys and interviews. Perform Background Research The project manager should review and understand in general the current local regulations and policies including, at a minimum, those discussed in previous sections, as follows: • Truck routing, • Parking and loading zones, • Time-of-day delivery, Putting It All Together: A Process for Evaluating and Addressing the Impacts 53

• Truck size and weight, • Design standards, • Infrastructure design, • Land use and zoning, and • Enforcement policies. Develop Baseline Information: Field Surveys/Inventories The designated freight project manager will need to assemble baseline data. Field surveys or interviews are a reasonable starting point from which to observe or otherwise gain an under- standing of regional truck movements and truck-related congestion in the urban area. A prac- tice that has been used successfully by several local communities is truck driver break room surveys. This technique calls for permission to post a regional map in truck driver break rooms of regional truck terminals, along with a set of simple instructions for identifying bottlenecks and congestion on the map (see Exhibit 6-1). Detail on this topic can be found in the Guidebook for Engaging the Private Sector, available through FHWA at http://www.fhwa.dot.gov/freightplanning/ guidebook/guidebook.pdf. Gathering baseline information about freight mobility issues is important for the following reasons: 1. The baseline information provides a starting point for addressing key issues, and 2. Baseline data also allows before-and-after evaluations of programs implemented. Having solid performance feedback about improved conditions can be critical to future sup- port from private-sector partners. An initial summary of findings, including maps showing areas of concern (such as truck con- gestion areas, bottlenecks, and trucks on non-truck-route roadways) can be prepared and pre- sented to local decisionmakers. Both the local MPO and state DOT may be able to assist with identifying locations and mapping. Identify Stakeholders and Conduct Interviews The project manager should identify a variety of local stakeholders including businesses, ship- pers, and major motor carriers in the area. Working with the local MPO may be useful in iden- tifying stakeholders who should include individuals connected to the types of businesses described in the 12 supply chain case studies identified in Chapter 2. These individuals should be interviewed to understand their issues, problems, and concerns. CRP-CD-105, which accompanies this guidebook, includes examples of the types of businesses to contact. The CD also includes a copy of the FHWA guidebook, Engaging the Private Sector in Freight Planning (Wilbur Smith Associates and S. R. Kale Consulting, LLC 2009). This document provides extensive guidance on how to identify and engage freight shippers and carriers in discussions about local goods move- ment problems. Summarize the Issues, Problems, and Their Locations Using the findings from the surveys and interviews, prepare a revised draft summary of the prob- lems and issues discovered, and update the draft maps prepared after the field surveys/inventory. 54 Guidebook for Understanding Urban Goods Movement

Putting It All Together: A Process for Evaluating and Addressing the Impacts 55 The Atlanta Regional Freight Mobility Plan Truck Driver Survey Identifying Truck Traffic Bottlenecks/Issues in the Atlanta Region GOAL: We are looking for truck driver input regarding bottlenecks, and impediments that make it difficult to drive a truck within the 20 county Atlanta Region displayed on this map. INSTRUCTIONS: Using the numbered, colored dots below, place the appropriate colored dot in the area you encounter mobility problems as you navigate the city in a commercial vehicle. The types of problems we are looking for: Geometric Constraints, for example: Insufficient turning radius Insufficient lane width Low overhead clearances Short or no acceleration lanes Traffic Issues, for example: Traffic signals closely spaced and ill-timed for commercial vehicles Poor or inadequate signage Infrastructure Problems, for example: Pavement rutting or potholes Restricted bridges Rough or high at-grade rail crossings Safety Hotspots: Sites of frequent crashes or near-misses involving commercial vehicles Source: Wilbur Smith Associates. Exhibit 6-1. Sample truck driver break room survey.

Education, Outreach, and Gaining Support Changing regulations is not always easy. Before identifying and proposing solutions, an effort should be made to understand how the public, private sector, and decision leaders feel about existing regulations and conditions. Determining what might be acceptable in the way of new or revised regulations before proposing and presenting solutions is recommended. Research conducted for this guidebook explains how and why there is a need to educate both local decisionmakers and the public on the significance of urban goods movement and its rela- tionship to the local economy. This guidebook and CRP-CD-105 include information and materials geared to local elected officials who need suggestions for how to support both the residents and businesses within their jurisdiction. Outreach meetings, workshops, and charrettes may help to educate and define the types of solutions that will be politically and publicly accept- able. Gaining support for solutions is also strengthened by developing partnerships with busi- nesses that should benefit from the changes. Conduct Workshops A workshop is different from a meeting. It is a working session in which information is pre- sented, followed by a facilitated discussion of issues identified through baseline data collection and stakeholder outreach. It provides a forum for a broad range of stakeholders to provide their perspectives on issues identified, discuss alternatives, and reach consensus about the best means of resolving issues. Conduct Charrette A charrette is another workshop format for collaboratively developing solutions, issues, or problems. Charrettes have become a popular practice in urban planning, because they provide a technique for consulting a broad array of stakeholders. Charrettes with different stakeholder groups are often held over multiple days to accommodate feedback loops. The small group or individual session inputs are then brought together for a comprehensive solution at the conclu- sion of the charrette. This option will require the planning staff to identify the topic for the char- rette, prepare materials, and conduct and record comments. Developing Partnerships Collaboration and consultation between planners, economic development groups, local Chambers of Commerce and freight shippers and carriers can be an effective way to effect change. The project manager should identify and contact these groups about this effort. These relationships would help vet which ordinances and regulations should be the key focus for the effort. Some MPOs already have established freight industry groups such as freight advi- sory councils to provide feedback on planning and regulatory developments. Asking to become a member of the freight council is advisable. Review and Evaluate Current Regulations Based on the findings from the surveys, interviews, outreach and partnership activities, and freight analysis, relevant regulations should be evaluated. Exhibit 6-2 provides a starting point for evaluation. It can be used to identify the types of effects resulting from various codes and regulations. 56 Guidebook for Understanding Urban Goods Movement

Identify Potential Solutions and Strategies to Improve Urban Goods Movements The following potential solutions and strategies provide ideas and suggestions for addressing specific types of impacts. Suggestions may include revising codes, ordinances, or regulations; developing new programs; or changing policies. The case studies following this section and the accompanying CD include other suggestions. Exhibit 6-3 provides a matrix summarizing poten- tial problems and solutions. Truck Routing Problems or Issues • Trucks on residential streets or routes where they are not permitted, and • Trucks not having direct routes or access to pickup or delivery destinations. Analysis/Evaluation • Has a dedicated truck route network been clearly defined? When has it last been updated? • Are the signs indicating truck routes well placed and clear of obstructions? • Do roadways designated as non-truck routes isolate facilities or locations? • Are truck routes designed and managed to accommodate heavy truck traffic? Putting It All Together: A Process for Evaluating and Addressing the Impacts 57 Truck routing Parking and loading zones Time-of-day delivery Truck size and weight Building codes, design regulations Infrastructure design Land use and zoning Enforcement policies Potential Impacts Regulation Increased Congestion Increased Air, Noise, Pollution Reduced Business Competitiveness More Trucks on the Roads Double Parking Trucks on Residential Streets Source: Wilbur Smith Associates. Exhibit 6-2. Regulation evaluation matrix.

Designate truck routes Improve signage Designate or add truck parking spaces Enforce parking and truck routing regulations Review and revise design standards for new construction to better accommodate freight needs (e.g. dock space, location, freight elevators) Work with businesses to schedule pick-up/ delivery times Modify local regulations designating the hours pick-ups/ deliveries are permitted Use cell phones and other technology to schedule or direct pick-up/ delivery times Improve roadway and bridge infrastructure to meet current design standards that accommodate trucks Evaluate "last mile" needs Work with freight industry stakeholder, local chamber or economic development staff Work with MPO or state DOT freight staff Conduct education and outreach on importance of freight Problem trucks on residential streets x x x x x x x trucks cutting through private property or parking lots to access pick-up/delivery locations x x x x x trucks not having direct routes for pick-up or delivery x x x xx x xx trucks circling blocks; no parking available x x x xx xx double parking x x x x x passenger cars/dumpsters in truck loading zones x x x congestion x x x x x x x trucks driving over curbs, hitting items near corners x x x x trucks having inadequate space to back up or turn x x x xx conflicts—business and industry uses x x x xx noise, dust, light pollution from freight uses x x x freight improvement projects not receiving priority x x x x Potential Solutions x x x Exhibit 6-3. Urban goods movement problems and potential solutions.

Potential Solution • Identify common origins and destinations that trucks need/want to access, • Create a plan for communicating existing truck routes, • Improve truck route signage, • Provide online resources for comments on truck routes and truck route violations, • Work with the MPO and adjacent jurisdictions to conduct a truck route study and develop truck route maps for the urban area, and • Work with local law enforcement on “how to” and “why” truck route enforcement is important. The Atlanta case study in Chapter 7 provides an example. Parking and Loading Zones Problems or Issues • Trucks circling blocks to find curbside parking for pick up or delivery, • Trucks double parking, • Passenger cars in truck loading zones, • Waste disposal bins/dumpsters in loading zones, and • Congestion. Analysis/Evaluation • Is signage for the loading zones clear? • Are passenger vehicles and other items such as waste containers blocking loading zones? • Are there an adequate number of spaces for the types of businesses on the street? • Which curbside areas are in the highest demand at various times of the day? Potential Solution • Work with local businesses to schedule deliveries to avoid conflicts, • Use technology or even cell phones to contact and coordinate with drivers, • Extend the hours or times of day that trucks are permitted to load and unload, • Strictly enforce truck loading zones; ticket passenger vehicles and other items that park in, or are placed in, these spaces, • Install variable pricing parking meters, • Add more curbside truck parking, • Require new construction and renovation projects to include adequate dock space (see the Resource CD for examples), and • Require new construction and renovation projects to include an adequate number of freight elevators (see the Resource CD for examples). The Toronto case study in Chapter 7 provides an example. Time-of-Day Delivery Restrictions Problems or Issues • Congestion from trucks trying to access pick up or delivery destinations during peak hour traffic. Analysis/Evaluation • Is truck congestion greater at specific hours of day? Potential Solution • Work with local businesses to accept deliveries in off-peak hours, • Work with local businesses to schedule deliveries to avoid conflicts, Putting It All Together: A Process for Evaluating and Addressing the Impacts 59

• Use technology or even cell phones to contact and coordinate with drivers, • Change time-of-day operating regulations to alter or extend hours when trucks may pick up or deliver goods, • Determine if there is a need to simultaneously revise noise ordinances, • Possibly test this initially with waste collection trucks serving businesses, and • Allow trucks to park (with a turned off engine/not idle) overnight for early morning delivery. The London case study in Chapter 7 provides an example. Building Codes Problems or Issues • Trucks extending onto roadways while picking up or delivering, and • Trucks blocking traffic or parking at the curb because of a lack of adequate docking space. Analysis/Evaluation • Do building codes need to be updated to address new truck design and increases in consumer goods volumes? Potential Solution • Review and update building codes for new construction or require retrofitting to provide ade- quate docking (space, design, number) and elevators dedicated to freight movement inside buildings. The New York City case study in Chapter 7 provides an example. Infrastructure Design Requirements/Operating Structure Problems or Issues • Trucks driving over curbs, hitting poles and signs at intersection corners, • Trucks not having adequate space to back up or turn, • Trucks not having access to facilities because of bridge height and weight limits, • Trucks needing to drive through privately owned roadways and parking lots to access inter- modal facilities or pick up and delivery locations (referred to as the “last mile”), and • Trucks not having direct routes or access to pick up or delivery destinations. Analysis/Evaluation • Do bridges and roadways meet current standards to accommodate the needed height and turning radii for modern trucks? Potential Solution • Identify common origins and destinations that trucks want to access, • Determine if the infrastructure adjacent to the origin and destination meets current state and federal design standards, • Determine the ownership of the infrastructure, • Work with local MPO and state DOT, economic development organizations, and the truck- ing industry to seek funding to improve the infrastructure to upgrade truck access and mobility, and • For infrastructure serving major goods movements facilities, work with city or county engi- neering office to revise local bridge and roadway design standards to those needed to accom- modate trucks. 60 Guidebook for Understanding Urban Goods Movement

Zoning Problems or Issues Conflicts and complaints between residents and businesses relating to • Truck traffic, noise, and air pollution, • Light and noise “spill-over” from urban manufacturing and distribution facilities, and • Reduction in property values because of adjacent business uses. Analysis/Evaluation • Have interviews with stakeholders or stakeholder workshops identified areas of potential conflict? • Will zoning changes reduce the economic competitiveness of the region? Potential Solution • Potentially review current zoning codes to include buffer zones between business, industrial, and commercial uses, • Require light screening, including limiting height of lights, directional covers on light fixtures, walls, and times of day lights can be on to avoid lighting spilling into residential areas, • Require noise screening with vegetation, fences, walls, or restricting hours of operation to avoid noise spillover, • Consider developing overlay zones to protect industry, and • See also, Green Initiatives below. The Baltimore case study in Chapter 7 provides an example. Zoning/Green Initiatives Problems or Issues • Conflicts and complaints between residents and businesses relating to urban goods movements. Analysis/Evaluation • Have industrial-commercial, business/manufacturing facilities and distribution centers that are major freight generators in the local area been identified? • Have vacant Brownfield sites in the area been identified? • Have clusters of major freight generating activities been identified? Potential Solution Both potential solutions below involve working with local business and economic develop- ment groups. Both solutions may need to be accompanied by tax incentives and infrastructure improvements needed to support increased freight movements. • Urban consolidation center/freight village: create a zone in which a cluster of industrial, inter- modal, distribution, and logistics buildings can be located within a secure perimeter. This zone would permit all activities relating to transport, logistics, and the distribution of goods car- ried out by various operators. It should be able to include uses that provide a range of support services to tenant firms and their operations. Additional details on consolidation centers and freight villages are provided on the Resource CD. • Brownfield redevelopment: identify and zone a Brownfield site to be used as an urban consol- idation center/freight village. Provide assistance to deal with environmental permitting, incen- tives to the site, and infrastructure to accommodate freight movements. The Buffalo, New York, case study in Chapter 7 provides an example. Putting It All Together: A Process for Evaluating and Addressing the Impacts 61

Project Prioritization Processes Problems or Issues • Infrastructure projects being funded and advanced do not address goods movement inefficiencies. Analysis/Evaluation • Has a report summarizing the findings from the local goods movement evaluation study been prepared? • Has a briefing or executive summary of the goods movement evaluation been prepared for local elected officials? Potential Solution • Work with the local Chamber of Commerce or MPO to establish a freight advisory group made up of local business and industry leaders who ship or receive large volumes of freight to the area, • Work with this group to identify projects under the jurisdiction of your local government that would most benefit urban goods movements in the area, • Research how freight movements are considered in selecting projects by the local government and MPO, • Educate the advisory group on who and how projects are selected and funded, • Produce and provide a report on the findings from the goods movement analysis to elected officials, • Use materials from the Resource CD to help educate local elected officials of the importance of efficient goods movement to local economic health and competitiveness, and • Assist in providing advisory group members with data and facts on urban goods movements in the local jurisdiction. Measuring Success Measuring success will depend on the goals and objectives set by urban areas for integrating consideration of urban goods movement into the planning process and improving freight mobil- ity and access within the urban area. Following is a list of potential activities and actions that may be an initial step to defining and measuring quantifiable improvements to the system. • The terms or concepts “freight” or “goods movement” are included in city/agency goals or policies. • Members of planning commission or city’s advisory committee include shipper, motor car- rier, or modal (rail, water, or airport) representative. • Analysis of freight or urban goods movement is included in work conducted by planning and zoning staff, building codes department, and transportation department staff. • City scan conducted to identify urban goods movement conflict locations—docking, parking, turning radii, height restrictions, weight restrictions (success can be measured by determin- ing how many locations are corrected). • Interviews or surveys are conducted with local businesses and industries to discuss goods movement problems and issues (success can be measured by determining how many prob- lems are addressed). • Truck routing study is conducted, truck routes identified, and adequate signage verified (suc- cess can be measured by development of a citywide truck routing plan that is compatible with surrounding regions). 62 Guidebook for Understanding Urban Goods Movement

• Working with MPO and neighboring jurisdictions is maintained to discuss shared urban goods movement problems, issues, and solutions. • Working with owners and operators of warehouses and distribution centers, as well as inter- modal facilities is performed to study “last mile” issues (success can be measured by determin- ing how many locations are improved). • Review and evaluation of design and zoning codes performed to assess if they are “freight friendly.” • Development of an urban goods movement action plan is performed. • In evaluating projects for funding, freight or urban goods movements are a prioritization factor. • Number of freight education sessions are conducted for the public, local decisionmakers, and officials • Changes and improvements are made to improve freight mobility and access based on research. • Changes to congestion, double parking, and freight-related complaints are visible. Putting It All Together: A Process for Evaluating and Addressing the Impacts 63