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Guidebook for Understanding Urban Goods Movement (2012)

Chapter: Chapter 7 - Case Studies

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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Suggested Citation:"Chapter 7 - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2012. Guidebook for Understanding Urban Goods Movement. Washington, DC: The National Academies Press. doi: 10.17226/14648.
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Below is the uncorrected machine-read text of this chapter, intended to provide our own search engines and external engines with highly rich, chapter-representative searchable text of each book. Because it is UNCORRECTED material, please consider the following text as a useful but insufficient proxy for the authoritative book pages.

Principal Findings When developing a strategic truck route master plan, it is important to change the mind- set from one of prohibiting com- mercial vehicles from certain neigh- borhoods to effec- tively and efficiently accommodating trucks in the urban environment. This is done through dialogue with stakeholders and identifying all possi- ble routes exhibit- ing truck friendly characteristics that may be enhanced by investment, over 64 Atlanta: Effectively Managing Truck Traffic in the Urban Environment Background Originally named Terminus, Atlanta was the terminating point for several major railroads serv- ing the South in the early and mid-1800s. As highway systems developed, Atlanta continued to be a hub of transportation activity. Today, Atlanta is the principal logistics hub for the southeastern United States. Current projections suggest that, without enhancement strategies, the region will be a victim of its own success. Traffic volumes will continue to outpace the ability to add capacity, with truck volumes leading the trend, resulting in ever-increasing delays and gridlock. Stakeholder inter- views already indicate that congestion could be a significant hindrance to further economic expan- sion in the region. Other less congested cities such as Charlotte, North Carolina, and Memphis, Tennessee, stand ready to compete for future transportation and warehousing jobs. Like most urban areas in the United States, many different jurisdictions have planning and man- agement responsibility for elements of the Atlanta metropolitan area transportation network. These include the Georgia Department of Transportation (GDOT), Atlanta Regional Commission (ARC), and local jurisdictions including counties and municipalities. The ARC is the designated metropolitan planning organization (MPO) for the 18-county Atlanta region. Many local jurisdictions in the Atlanta region have no designated truck routes on their sec- ondary road networks. An inventory of truck management policies conducted as part of the Strategic Truck Route Plan found that some counties only maintain lists of “No Trucks Allowed” routes; others maintain signage on roadways that were designated as truck routes over 50 years ago, and others have not identified any form of truck routes at all. With three major Interstate highways intersecting in the heart of Atlanta, as well as a perime- ter ring-route Interstate, the radial design of Atlanta’s Interstate highways has been relied upon to funnel most of the truck traffic crossing the region. Numerous capacity enhancements have added lanes, but traffic volumes continue to exceed capacity, and non-recurring events from weather or collisions can idle the network for hours. With regional responsibility, the MPO embarked on a process to prepare a truck access plan for regionally oriented truck movement. This system had the following two goals: • To alleviate the Interstate network of truck traffic that was regionally oriented, allowing the capacity to first be applied to truck movements through the region, and • To offer multiple routes in each primary direction, using existing roadways, and to develop/ implement a methodology acceptable to the public sector, private sector, and community for local implementation. C H A P T E R 7 Case Studies

The Story On a hot July morning, John and Bob eased their vehicles into the stop-and-go procession of metal and humanity known as morning rush hour in Atlanta, Georgia. Bob, a commercial truck driver, had spent the previous night in the sleeper of his truck-tractor parked in the Fly- ing J truck stop in Jackson, just south of Metro Atlanta. On his way from Orlando, Florida, to Lexington, Kentucky, with a load of produce scheduled for delivery at 6:00 A.M. the next morn- ing, Bob hoped to reach Lexington before his hours of service (HOS) driving limit ran out. Bob pulled out of the truck stop at 7:30 A.M. and was back on the road again. John, also a commer- cial truck driver, had already commuted into work and was now beginning his day as a profes- sional driver. This day would find him traveling a “milk run” delivering and picking up at var- ious locations around the area, crisscrossing most of the 18 counties forming metropolitan Atlanta. John’s customers have come to trust his dependability and cheery nature. At 7:45 A.M. John departed his base terminal located just south of the I-285 loop and proceeded down the entrance ramp to the freeway. As is often the case in the South, hot, humid conditions can generate fast-moving storms that inundate an area for several minutes then move on or die out. This morning, one such storm popped up just as the rush hour in North Metro Atlanta peaked. Slippery conditions and poor visibility caused two cars to simultaneously slide into the median at the junction of I-75 and I-85. The incident immediately triggered four more vehicles to crash, including a tanker truck loaded with gasoline, effectively closing the northbound lanes of I-75 for the next 4 hours. Thinking he had left late enough to miss the height of rush hour, Bob was now downstream from the pileup. A novice to driving the Atlanta region, Bob hoped I-75 would clear quickly, but 2 hours later he had progressed little and checked his road map for an alternate truck route. Uncertain of the local street restrictions, he felt forced to remain on I-75. As noon approached, traffic began moving, but having been “on-duty” behind the wheel for more than 4 hours, he would at best make Knoxville before HOS regulations required him to stop for a 10-hour rest period. After calling his customer, his delivery appointment was resched- uled to 6:00 A.M.—the day after next! Like dominoes, his remaining appointments for the week were rescheduled and ultimately he lost two loads reassigned to competing drivers. Under his breath, Bob murmured, “one lousy wreck that I’m not even involved in, and I lose a grand this week.” John, an old-hand at maneuvering around Atlanta’s traffic jams, got caught in the snarled traffic, but soon advanced enough to take Exit 241, Cleveland Avenue. Using the alternative route and skirt- ing a neighborhood where trucks were not allowed, he could still make his first appointment at Owens-Illinois. After reaching the exit, John turned first on Forrest Hills Drive, then Grand Avenue. Owens-Illinois soon came into view, the plant would still get the materials needed to maintain their just-in-time supply chain, and the manufacturing line would not be idled this morning. Lessons and Outcomes Modal selection for moving goods in urban areas is characterized by a strong dependence on trucks either as a sole-source service or as part of a multimodal solution. In 2002, the United States estimated that 60 percent of all goods by weight moved by truck (70 percent by value). Forecasts suggest the share of goods moving by truck will continue to grow, because trucking is the only modal business model that provides door-to-door service between the shipper and consumer. In Georgia, 86 percent of total freight volumes move by truck. Truck traffic in Atlanta typically constitutes between 10 percent and 15 percent of Interstate traf- fic volumes. As freight volumes grow, having a well-defined strategy for providing future highway Case Studies 65 time, to satisfy both the needs of the freight commu- nity and the com- munities in which trucks operate.

capacity for truck traffic becomes crucial to Atlanta’s economic competitiveness, especially in the face of fiscal realities suggesting that infrastructure enhancements will be only marginal. Designing and enhancing an alternative route network to the radial Interstate highway net- work was identified in the Regional Freight Mobility Plan as a potential strategy. Alternately, new construction of yet another bypass ring-route to alleviate truck volumes on existing Interstates in the metro region is another proposed solution. Each of these solutions provides resolution, but additional bypass capacity carries with it the possibility of unintended consequences for additional growth in the form of sprawl. The development of a Strategic Truck Route Master Plan encompassed the identification of existing non-Interstate roadways that most suitably fulfill the need for access. Selected truck routes should exhibit truck friendly characteristics that may be enhanced by investment, over time, to satisfy both the needs of the freight community and the communities in which they operate. The adoption of such a system is one of • Lesser investment needs that provide an efficiency-oriented solution instead of one of construction; • Economy-of-scale expansion of the system in which the methodology exhibits a vision of future designation; and • Complementary to integrated land-use designation practices that are planned to successfully adapt to land-use planning, existing and new development, and adaptation of previous land- use designations to new, more freight- or non-freight-centric uses. In July 2010, the Atlanta Regional Commission (ARC Board), which is comprised of represen- tatives of all local jurisdictions, adopted the Atlanta Strategic Truck Route Master Plan (ASTRoMaP). The successful adoption of ASTRoMaP has been attributed to the extensive inter- action with all parties involved in creating the network. Throughout the process, local jurisdic- tions were well informed about the purpose and progress, and repeatedly throughout the process, allowed to question the designation of routes during the process as opposed to raising questions only at the point of adoption. Concerns were answered or adaptations made as the study was being conducted. ASTRoMaP represents a truly regional approach that avoided addressing access issues for individual jurisdictions. The network can be viewed as a benefit to all local communities in the Greater Atlanta region. Many urban areas in the United States have designated truck routes primarily as prohibitions against commercial vehicles (i.e., truck routes more often than not are simply a means of keeping trucks out of residential neighborhoods). The approach adopted by Atlanta was undertaken as a means of effectively and efficiently accommodating trucks in the urban environment. This attitude contributed greatly to the success of the project and the overall strategy. The entities involved in the process expressed a significant desire to initiate a network that encompassed not only regional but local access issues. To prevent the distraction of an individual local road generating a specific need and counterpoint discussion, interviewees understood the MPO’s approach to develop a “backbone” system. In subsequent discussions, post adoption, local county jurisdictions are reviewing funding mechanisms to pursue similar strategies to develop more localized networks to complement and support the regional network. References and Sources Arey, Norman, “Greater Atlanta Metropolitan Area Now Includes Alabama County,” Atlanta Journal-Constitution, Knight Ridder/Tribune Business News, August 25, 2003. Atlanta Regional Commission, Cities and Towns 2009 Yearbook of Growth and Change, 2010. Atlanta Metropolitan Area, as defined by the U.S. Census. U.S. Department of Transportation, Federal Highway Administration, Freight Facts and Figures, 2005. 66 Guidebook for Understanding Urban Goods Movement

Baltimore: The Maritime Industrial Zone Overlay District (MIZOD) Background Baltimore, Maryland, is the farthest inland deepwater port city on the U.S. East Coast. The city, founded in 1729, is now approximately 80 square miles and has grown to a population over 630,000 within an urban area population of approximately 2.7 million (U.S. Census 2010). The waterfront has always been viewed as one of the city’s most valuable assets. During the real estate boom of the late 1990s and early 2000s, the city converted numerous waterfront industrial properties to mixed-use development with significant high-end residential housing. These con- versions occurred mainly through City Council and mayor-approved planned unit developments (PUDs) for sites in the existing industrial zone. In 2004, the city enacted a Maritime Industrial Zoning Overlay District (MIZOD) to protect its maritime industries by identifying waterfront areas with deepwater drafts of 18 feet or more and reserving them for industrial use. The Balti- more Department of Planning (DOP) annually evaluates the MIZOD’s effectiveness in retaining the maritime industry. Based on its success in bringing jobs to the city, the MIZOD has been extended to 2024 and is being considered for permanent rezoning. The Story Baltimore Development Corporation (BDC) is the City of Baltimore’s economic development agency. BDC conducts annual outreach meetings with businesses throughout Baltimore City. During the real estate boom in the early 2000s, many of the maritime and industrial businesses began raising concerns about real estate developers buying industrial waterfront parcels and hav- ing them rezoned as PUDs (see Exhibit 7-1). Developers began building high-end residential housing, “hop-scotching” over industrial parcels and quickly moving to take over the waterfront. As real estate developers urged “highest and best use” zoning, elected officials made decisions to rezone land as PUDs without vetting through the city’s Planning Department. The limited and valuable waterfront land needed for port-based industrial development was disappearing. The port/maritime industries, once a powerful lobby, seemed to have lost their voice. Although the State of Maryland assumed administration of some Baltimore cargo terminals in 1972, the Maryland Port Administration and the City of Baltimore had communicated only infrequently about issues of land use and zoning since then. When the city finally introduced legislation to address zoning practices, residents in new PUDs were also voicing concerns about the noise, truck traffic, and dirt generated by the industrial uses. Many new residents said developers led them to believe that industrial uses would be gone in 2 to 3 years. When businesses and residents became more vocal, the BDC and DOP teamed up to preserve maritime industries in Baltimore. A 2002 BDC report stated that private-sector investments in port facilities were in danger of being deferred over uncertainty about city zoning policies. In addition, the study suggested that when a deepwater site was rezoned for mixed-use develop- ment, it was very unlikely to revert to maritime use. The report recommended zoning as one method available for protecting deepwater access for maritime shipping and related activities. In 2004, in response to study findings, the City of Baltimore adopted a Maritime Industrial Zoning Overlay District (MIZOD) land parcel designation. The new zoning designation over- laid the heavy industrial (M-3) zone and protects waterfront land with a draft greater than 18 feet that is already industrial and has good highway or rail access. The city limited the MIZOD to a 10-year life; however, shortly after MIZOD establishment, the industrial community suc- cessfully lobbied to have its life extended to 2024. Case Studies 67 Principal Findings Creating protected industrial zones in urban centers where there are restrictions placed by the planning authority on resi- dential, retail, and leisure develop- ments can safe- guard commercial centers and attract new business. This policy is particularly applicable to port sites where water- front land, which is vital for vessel man- agement, could be lost to residential development, alter- ing the land use of the area forever.

The MIZOD preserves the areas within the district for maritime industrial use by • Disallowing PUDs, which are currently the principal method of converting industrial zoning to mixed-use; • Prohibiting hotels, motels, taverns, and all other uses not permitted in an M-3 district; • Allowing offices and restaurants as accessory uses only; and • Maintaining the underlying heavy industrial (M-3) zoning. The 2004 MIZOD legislation required the DOP to produce an annual report to track its effec- tiveness in retaining maritime industries. The annual report has shown that about 16,700 direct jobs can be connected to the port. Since 2007, approximately 100 new firms have located to the MIZOD area that now boasts over 160 businesses. Because of the global recession in 2009, there were 1,713 vessel calls, down from a 2005 high of 2,119. Lessons and Conclusion Although annual totals vary from year to year, the annual average investment in the MIZOD since 2000 is $26.3 million. Currently, the city is rewriting its 30-year-old zoning code and consid- 68 Guidebook for Understanding Urban Goods Movement Source: City of Baltimore Department of Planning, MIZOD Summary and Evaluation 2009-2010. Exhibit 7-1. Boundaries and dates of adoption of PUDs around the MIZOD.

ering permanently codifying the MIZOD to a maritime industrial zone. This process has also ele- vated truck routing issues to more prominence. For example, while Baltimore has had a “non- truck” route map, it had no truck route map. In response to the raising of this issue during the MIZOD discussions, the Baltimore Department of Transportation is developing an official truck route map. According to the BDC and the Maryland Port Administration, recognizing the problem and the development of the MIZOD required an education process. The state, the Maryland Port Administration, and the area’s maritime industry needed to take the lead and explain to local elected officials and the public the port’s importance in terms of jobs and the economy and the significance of their waterfront location. Their message explained that a “critical mass” of port- related industries is necessary to maintain ongoing port operations. The city’s creation of the MIZOD was a first step in protecting the port operation. While Bal- timore’s origins and history are directly tied to the waterfront, it is important to understand that once a working port is gone, it is likely gone forever. Luxury condos provide taxes, but they are not a job engine like a working port. Planning officials do not believe the Baltimore story is yet over; the MIZOD is working now, but the city is constantly evolving. As the economy and tastes in housing change, populations and housing patterns will shift and new problems and issues will arise. Protecting the land around the port and the health of port industries is critical to the region’s economy. How MIZOD use may evolve also will need continual monitoring to ensure that the zoning designation continues to achieve its objectives. References and Sources Maritime Industrial Zoning Overlay District Annual Report, Summary and Evaluation 2009–2010, City of Baltimore, Department of Planning. Interviews with • Deputy Director for Planning, Maryland Port Administration, State of Maryland, • Managing Director of Industrial Development, Baltimore Development Corp., • Division Chief for Research and Strategic Planning, Department of Planning, and • Economic Development Planner, Department of Planning. Toronto: Harmonizing of Loading Area Regulation across a Mega-City Background With a population of over 2.5 million, Toronto is Canada’s largest city and the heart of one of North America’s largest metropolitan areas. The city’s official plans, bylaws, and zoning regula- tions seek to focus growth in geographic areas where it is best accommodated. As a result, Toronto’s designated activity centers contain a significant amount of high-density, mixed-use development, including both business and residential uses. As Toronto’s downtown and centers have become more densely occupied, goods movement activities become mired in traffic con- gestion, parking shortages, and inadequate loading/unloading facilities. Consequently, the effi- ciency and cost-effectiveness of goods movement in the city may be compromised, with direct effects on both shippers and receivers. Partially to address these incompatibilities, the City of Toronto has undertaken efforts in recent years to manage and accommodate goods movement and delivery needs in the most densely developed parts of the city. In 1998, the Province of Ontario passed legislation “amalgamating” seven municipalities— the regional government of metropolitan Toronto and six local area municipalities. Case Studies 69 Principal Findings Unifying loading, unloading, and waiting restrictions within contiguous jurisdictions in a metropolitan area can make urban delivery more effi- cient, harmonize enforcement strate- gies, and improve understanding between logistics providers, their clients, and local authorities. In addi- tion, freight and service vehicles can be catered for in simple ways such as minimum waiting periods for freight vehicles displaying a windshield “service provider” ID card, standardizing load- ing spaces, and allowing hand deliv- ery of parcels using metro and under- ground services.

In 2006, amalgamated Toronto had a population of 2,503,281. The Greater Toronto area has a total population of 5,555,912 with an average density of over 3,900 persons per square kilometer. In 2009, the city employed 1.3 million people. The office sector is the city’s largest employer with 607,800 jobs. The institutional sector, with 216,000 employees, is the second largest sector. Toronto has a well-established history of encouraging and pursuing high-density, mixed-use development in the central city and appropriate growth zones across the city. The city’s Official Plan directs growth to a number of key areas of the city that can accommodate the magnitude of growth expected while also protecting and preserving the fabric of existing residential neighbor- hoods and the valuable green space system. As shown in Exhibits 7-2 and 7-3, these areas are the downtown and central waterfront, the centres, the avenues, the employment districts, and cer- tain Secondary Plan areas. Toronto’s downtown core has long been the focal point of issues related to goods movement and local delivery operations. As building development and the associated traffic levels grow, competition for curbside access becomes more intense. Until recently, cab stands have been the only legal curbside activity in downtown’s central core—anchored by office towers of the finan- cial district. Delivery needs associated with new storefronts often occupying ground level (e.g., Starbucks) increase the pressure to formally allow use of curbside parking delivery vehicles in no-parking zones. Data from Toronto found that the average courier stop time in the downtown zone was about 7 minutes. 70 Guidebook for Understanding Urban Goods Movement Source: City of Toronto Official Plan, October 2009. Exhibit 7-2. Amalgamated municipal components—city of Toronto.

The Story To achieve the vision of Toronto’s Official Plan, the city must accommodate and facilitate effi- cient goods movement, including curbside access to loading/unloading areas in the central city. In the dense, mixed-use urban environment envisioned by the Official Plan, inadequate plan- ning for loading zones undermines cost-effective logistics, safety, passenger and freight mobility, and general quality of life. Toronto is pursuing initiatives to both facilitate more efficient delivery and support alterna- tive logistics methods for delivery operations in the central city area. These initiatives include citywide harmonization of loading zone requirements and policies, new and expanded loading zone signage, a courier windshield permit system, and use of an underground walkway network by couriers and delivery services. Shortly after amalgamation of Toronto was complete, the city recognized the need to thor- oughly review and consider major revisions to rezoning, parking and loading policies, and regu- lations. In 2002, Toronto City Planning staff began laying out a course for a comprehensive effort to unify zoning, parking, and loading bylaws. The goal was to make city codes more uniform, understandable, and enforceable across the entire city and more in line with current and future plans for development projects and patterns. Case Studies 71 Source: City of Toronto Official Plan, October 2009. Exhibit 7-3. City of Toronto Official Plan urban structure, 2009.

The harmonization process took nearly 8 years and included an extensive effort that encom- passed multiple studies and reviews, as well as ongoing outreach to citizens and stakeholders across the city. The process culminated in August 2010 with Toronto City Council approval of a new city- wide zoning bylaw. With the adoption of standard loading/unloading space standards across the amalgamated City of Toronto, all concerned parties have a common set of rules by which to play. City officials believe that while the bylaw may not significantly affect existing development and buildings, it will facilitate much more efficient and safe delivery and goods movement in new struc- tures in the downtown area. For example, new construction in the Maple Leaf Square area has been required to have all loading areas built underground and to be interconnected. During 2011, Toronto plans to install signs in some no-parking zones of the downtown (see Exhibit 7-4) to delineate specific curbside package delivery space to accommodate two or three vehicles at a time at each location. The city is beginning this effort by signing the zones that records compiled by the courier industry show as being the 10 most frequently ticketed locations in the downtown. The City Traffic Operations Division will monitor the use of these signed spaces, evaluate their impact/effectiveness, and possibly expand the delivery space concept across the entire downtown in 2012. Windshield Permits for Downtown Messenger Vehicles Many messenger services in Toronto employ vehicles (typically automobiles) that park briefly in curbside no-parking areas adjacent to office towers because of the time-sensitivity of their business. Often, these vehicles have no identifying information to indicate their commercial pur- poses to a parking enforcement officer. To accommodate the messenger service demand and manage the number of vehicles vying for curbside parking in dense downtown areas, the City of Toronto is facilitating creation of a messenger identification card system. The courier industry is designing and issuing numbered windshield identification cards that will be recognized by Toronto Police Parking Enforcement. The Traffic Operations Unit will request parking enforce- ment officers to provide reasonable consideration to the parked vehicle (10 to 15 minutes) to allow the driver to complete his/her delivery before issuing a parking ticket. Courier Use of Toronto PATH (Downtown Walkway) System PATH is downtown Toronto’s underground walkway system, linking 28 kilometers of shopping, services, and entertainment. The system facilitates pedestrian linkages to public transit, accommo- 72 Guidebook for Understanding Urban Goods Movement Exhibit 7-4. Delivery vehicle in downtown no-parking zone.

dating more than 100,000 daily commuters and thousands of additional tourists and residents on route to sports and cultural events. As shown in Exhibit 7-5, more than 50 buildings/office towers are connected through PATH. Twenty parking garages, five subway stations, two major department stores, six major hotels, and a railway terminal also are accessible through PATH. The first underground path in Toronto originated in 1900 and by 1917 there were five tun- nels in the downtown core. With the opening of Union Station in 1927, an underground tunnel was built to connect it to the Royal York Hotel (now the Fairmont Royal York). The PATH began to grow in earnest in the 1970s and in 1987 Toronto’s City Council adopted the recommenda- tion that the city become the co-coordinating agency of PATH and pay for the systemwide costs of designing a signage program. Each segment of the walkway system is owned and controlled by the owner of the property through which it runs, with about 35 corporations involved. The City of Toronto is developing a PATH Master Plan to guide the future development of the underground pedestrian network and improve its current operational design. Currently, the PATH system is a network of approximately 28 kilometers of combined underground and above-ground walkways that provides direct access to close to 4 million gross square feet of retail space. There are plans to connect the PATH to seven proposed residential buildings over the next 5 years, and the city is constructing a new link that will extend 300 meters northward from Union Station under Wellington Street at a cost of $60 million. PATH also provides an important means for timely and cost-effective deliveries in a major part of downtown Toronto. For example, Purolator Courier, Canada’s largest courier service provider, maintains five package distribution rooms within the PATH system, from which about 35 foot couriers operate to and from buildings across downtown. One of the most important benefits for Purolator of using the PATH system is that it can maintain its courier services even when mobility on the surface streets is disrupted. Case Studies 73 Exhibit 7-5. Map of Toronto’s downtown walkway system (PATH). Source: “City of Toronto PATH—Toronto’s Downtown Walkway,” http://www.toronto.ca/path/

By moving to use of foot couriers in the underground walkway, Purolator both avoids having to deal with surface street congestion and helps to mitigate overall traffic congestion in the down- town. Purolator officials estimate that the firm’s use of the PATH system has allowed it to remove 36 delivery vehicles (on average) from surface streets each day. Purolator anticipates that its courier operations in the PATH system would expand along with expansion of the system itself. At this time, at least one other courier, UPS, is also using the PATH system, but with only one package distribution room and in a much more limited manner than Purolator. Lessons and Conclusion As Toronto continues to grow and attract mixed-use, high-density development to the city’s downtown, it has recognized the importance of making appropriate provisions for efficient and safe movement of goods and deliveries that support the city’s economy. Although problems with traffic congestion, competition for curbside delivery spaces, and illegal parking remain, the City of Toronto has begun to take significant, measured steps toward workable solutions to these problems. In addition, the city is contemplating at least two longer-term strategies for making delivery activities in the downtown area more efficient: (1) an annual permitting fee that would allow exemptions to certain no-parking restrictions for those willing to purchase such permits; and/or (2) an in-vehicle metering system that would allow entry to, and delivery stops within, certain downtown zones for limited periods each day. Through this coordinated set of strategies, Toronto is helping optimize mobility for downtown activities and facilitating a sustainable, vital city for the long term. References and Sources “City of Toronto Official Plan,” available online at http://www.toronto.ca/planning/official_plan/introduction.htm “City of Toronto PATH—Toronto’s Downtown Walkway,” available online at http://www.toronto.ca/path/ “City of Toronto Zoning Bylaw Project—About the Project,” available online at http://www.toronto.ca/zoning/ about.htm Haider, M. et al., Challenges Facing Express Delivery Services in Canada’s Urban Centres, Ryerson University: Insti- tute of Housing and Mobility, 2009. Interviews with officials of City of Toronto Planning and Traffic Departments, November/December 2010. Interviews with officials of Purolator Courier (Canada), December 2010. MMM Group, Ltd., City of Toronto Loading Standards Review, prepared for the City of Toronto, May 2009. Metrolinx, Greater Toronto-Hamilton Area (GTHA) Urban Freight Study Stakeholder Workshop—Workshop Sum- mary Report, March 2010. Washington, D.C.: Commercial Vehicle Regulation Background The U.S. Constitution established the District of Columbia (D.C. or “the District”) in 1789 when this land area was set aside for the nation’s capitol. D.C.’s population peaked in 1950 with just over 800,000 residents. As of 2010, estimates place the D.C. population at 601,723. In 2007, the Washington-Arlington-Alexandria, D.C.-VA-MD-WV Metropolitan Statistical Area (MSA) ranked second nationally in congestion, with an average of 62 hours of traffic delays per traveler per year. Trucks make up approximately 5 percent of total average daily traffic in the District, but on some routes, trucks constitute 12 percent to 15 percent of total traffic. In 2004, the Planning and Policy Analysis Division of the John A. Volpe National Transporta- tion Systems Center completed a study for D.C. officials entitled District of Columbia Motor Car- rier Management and Threat Assessment Study (Volpe National Transportation Research Center 74 Guidebook for Understanding Urban Goods Movement Principal Findings Overweight trucks can be significant contributors to pavement and bridge repair costs. In the District of Columbia, these costs were esti- mated to be as much as $16 mil- lion per year. The implementation of innovative enforce- ment technologies (e.g., weigh-in- motion scales) can have significant impacts in reducing these costs.

2003). The District sponsored the study to address concerns about truck traffic, commercial vehicle parking, and security concerns in the wake of 2001 terrorist attacks against the United States. In response to the study’s recommendations, the District DOT (DDOT) created a Motor Carrier Planning Division. The Story Following one of the recommendations in the Threat Assessment Study, DDOT formed the Motor Carrier Division to address mobility, safety, security, and environmental concerns related to freight and bus transportation. In 2008, Eulois Cleckley joined the DDOT staff as manager of the newly formed Motor Carrier Division. Since most commerce in the District originates from freight generators in surrounding Maryland and Virginia, mobility and efficiency were para- mount concerns that could be addressed by developing a truck route network. There are no offi- cially designated truck routes in D.C., but a number of de facto truck routes had been identified that drivers preferred because of roadway geometry, traffic conditions, and location relative to trip origins and destinations. The formal designation of truck routes in the District would address many longstanding concerns such as noise and vibration complaints from residents, security con- cerns around high-risk facilities, congestion, and the need for better information and services for truck operators and their customers. The District of Columbia Motor Carrier Management and Threat Assessment Study recommended several truck routes and restricted truck zones. Cleckley understood that to move forward with designating a District truck route network, he had to improve communications with the trucking industry and D.C. neighborhoods. At the same time, there was a need to develop better baseline information about the level of illegal trucking operations, such as overweight vehicles. DDOT began the truck route effort by con- ducting a best practice review of other major urban areas that had implemented truck routes. Ultimately, the design and planning of the District’s truck and bus route system employed a pri- marily original approach that included engineering and planning considerations, neighborhood contextual analysis, commercial considerations, public feedback, and practicality. The District designed the process to be as holistic as possible, with significant attention paid to balancing vari- ous engineering and planning elements with stakeholder interests. The first step to balance various interests was to receive feedback about the proposed truck routes from the ward, city, and regional planners in the District. Meetings were held with each planner to explain the background, purpose, and goals of the project. Next, meetings were held with private truck and bus firms to explore opportunities for improving operational efficiency for industry and improving the clarity of truck and bus regulations for industry groups. Initially proposed bus and truck routes also were distributed to all advisory neighborhood commissions (ANCs) for their review. Meetings were arranged with responding ANC commissioners to dis- cuss the proposed routes, answer questions, and receive advice on specific neighborhood ele- ments to consider. Despite the extensive outreach program, DDOT still faced many challenges to implementing the truck and bus route system. Beyond the obvious challenge of getting both public and private sectors to agree with a particular route, there was also the issue of whether selected routes were in a condition to handle the wear and tear of being designated a commercial route. Following the design process, the Motor Carrier Division developed maps detailing the truck and bus route system. Several internal use maps detailed all truck and bus restrictions and categorized routes by type (i.e., National Network versus Charter Bus Only). An additional map was developed for public distribution showing primary routes, charter bus only routes, restricted areas, and load- ing zones. In addition to the maps, the project developed official rules to be incorporated into the D.C. government Code of Municipal Regulations. Case Studies 75

Lessons and Conclusion Cleckley believed that once a truck route network was in place, enforcing truck size and weight laws would be a key factor in preserving the infrastructure and improving truck safety. Each year, DDOT spent roughly $20 million on pavement rehabilitation and preservation, and it was sus- pected that a significant amount of pavement and bridge wear resulted from damage caused by overweight trucks. DDOT officials understood that increasing maintenance costs while facing diminishing highway funds would require effective steps for preserving some roadways rapidly approaching critical condition. To address the enforcement issues, DDOT developed a project scope to analyze and quantify the effects of overweight trucks and their associated costs on the District roadway network, and developed an enforcement strategy to mitigate future damage resulting from illegal truck oper- ations. The District hired a consultant to assist in carrying out the analysis with the ultimate goal of developing a citywide truck safety enforcement plan. The analysis undertaken for the study estimated total infrastructure costs, both pavement and bridges, attributable to overweight trucks at approximately $16 million per year. The study also laid out a comprehensive plan for upgrading enforcement technologies, such as the addition of several weigh-in-motion (WIM) scales to detect overweight trucks, and an increased amount of enforcement personnel. After making great progress in less than 2 years, the election cycle and a new administration granted D.C transportation officials time to reflect on next steps for implementing and main- taining a quality truck route system, steps that would require resources and increased inter- agency cooperation. At a peer-to-peer exchange with NYDOT in 2010, D.C. officials witnessed how cooperation across offices and departments could, to an extent, overcome resource hurdles. So the next challenge was to improve communication and cooperation among offices and juris- dictions responsible for truck licensing, data collection, and traffic enforcement in the District. References and Sources D.C. DOT Freight and Commercial Vehicle Operations website: http://www.godcgo.com/home/get-me-there/ getting-around/freight-management.aspx District-wide Truck Safety Enforcement Study, online fact sheet available online at http://www.godcgo.com/ Portals/0/Freight_PDF/District-wide%20Truck%20Safety%20Enforcement%20Study.pdf Presentation to DVRPC Freight Committee: Innovative Approaches to Enhancing Goods Movement available online at http://www.dvrpc.org/Freight/pdf/2010-07_Cleckley.pdf U.S. Census Bureau, 2010 Census Bureau: Population Density, available online at http://2010.census.gov/ 2010census/data/ Texas Transportation Institute, 2009 Annual Urban Mobility Report, Summary Table 1, available online at http://mobility.tamu.edu/ums/congestion_data/tables/national/table_1.pdf Nashville: Vanderbilt Medical Center— Freight Consolidation Background Nashville, Tennessee, is a medium-sized U.S. urban area of 2.1 million residents. The metro- politan population has more than doubled in the past 2 decades; its growth has accelerated from almost a 3 percent compound annual rate in the first 10 years, to more than 5 percent in the next 10 years. Situated on the Cumberland River, Nashville is the state capital and stands at the inter- section of three Interstate highways: I-40, I-65, and I-24. This crossroads location, coupled with the pressures of growth, has brought important transportation challenges to the area. 76 Guidebook for Understanding Urban Goods Movement

Vanderbilt University is Nashville’s largest private employer, generating economic activity of $6.5 billion annually. The university’s renowned medical center, which includes medical and nursing schools as well as an extensive network of hospitals, clinics, and research facilities, pro- duces the greatest part of Vanderbilt-related employment and economic impact. Since health- care is the metropolitan area’s leading industry, Vanderbilt Medical Center (VMC) is at the apex of the urban economy. Like the region it serves, VMC has experienced tremendous growth. Spending more than $100 million each year on major construction and renovation projects, its physical footprint expanded over 80 percent during the past decade. This investment supports a system that handles 50,000 admissions, 100,000 emergency room visits, and more than 1 million ambulatory visits each year. The Story VMC’s supply requirements are tremendous, ranging from large quantities of everyday mate- rials like bed linens and food, to sophisticated medical instruments and sensitive products like blood plasma, stents, and pharmaceuticals. The breadth of individual items and the number of individual suppliers—distributing from a range of points that are local to global—could easily give rise to a barrage of separate shipments arriving daily. Add to this the urgency with which many goods are required, and the diversity of care and caregivers they supply, and two conse- quences can follow: 1. Hospital space and hospital budgets stuffed with inventory, or 2. Hospital delivery docks constantly under siege from an endless line of delivery trucks. The VMC in this sense is a microcosm of the city; it has a large, insistent population wanting many things as soon as possible, all uncoordinated as to needs and timing. Freight carriers serv- ing VMC will, as a matter of efficiency, combine shipments into single deliveries when possible, but since each carrier has only limited control over their link of the supply chain, several carri- ers often serve any given receiver of goods. In the early 1990s, VMC recognized the situation for the well-intentioned chaos it promised, and anticipating coming growth, inaugurated a consolidated supply system with the aid of third-party logistics providers (3PLs). Prior to consolidation, VMC was devoting an ever-expanding portion of facility space to a centralized stock room and keeping inventory on care wards as well. Inventory stocking practices piled building and inventory carrying expenses on top of healthcare costs, and this situation was made worse by the high costs of transporting small, expedited shipments. After seeking input from 3PLs, two basic changes followed. First, wards would be resupplied daily and directly with whatever they needed, but inventory would be kept off-site in distribution centers (DCs) that received goods from many suppliers and served many hospitals. Supplies would be guaranteed and emergency requirements accommodated, but mainly this would be done from a warehouse about an hour away. Second, the 3PLs would consolidate and deliver all of the supplies from all of the vendors. This meant that a single delivery truck would handle a full set of shipments, and although several might arrive in the course of a day, the number of trucks arriving (and the miles they traveled) would be drastically reduced. By serving multiple hospitals, the 3PLs were able to consolidate truck arrivals inbound to the distribution centers as well. Today, the VMC logistics system has evolved into five supply chains, treating five distinct sets of needs, as follows: • Medical-pharmaceutical is for the supply of drugs. Drugs have a host of regulatory and secu- rity requirements preventing them from being mixed with other products. Hence, pharma- ceutical products are handled as an independent logistics chain. Case Studies 77 Principal Findings Freight consolida- tion centers (FCC) can have major benefits in terms of reducing the num- bers of vehicles entering urban areas. Of key importance to their establishment is a detailed under- standing of the current methods of supply by busi- nesses in the dis- trict and the mech- anisms by which the FCC could operate (100 per- cent privately funded, a mixture of private/public partnership, com- pulsory buy-in for access to specific areas, and/or vol- untary buy-in).

• Medical-surgical provides most other patient supplies, excluding drugs. Management of this supply chain has been contracted to a 3PL that operates from a local warehouse served by a hub DC in the region. Multiple scheduled deliveries occur daily, emergencies are added, and stocks are managed at the ward level by the 3PL interacting with caregivers. • Laboratory supplies for research and diagnostics come directly from manufacturers to a central DC in the city and arrive twice daily at VMC. • Office supplies supporting administrative needs are handled through a single catalogue ven- dor offering daily service. Office supplies are managed cooperatively with Vanderbilt Univer- sity, so that both parties are supplied at once. • Miscellaneous supplies, principally linens and food service, are handled directly by local vendors and managed cooperatively with the university. In addition, small package carriers bring vendor- direct materials for patient-specific needs, oxygen and blood come from nearby sources, and waste haulers carry away refuse. The evolving consolidated supply system allows the full range of medical center needs to be accommodated with just three loading docks. The docks have bays and handling areas (see Exhibit 7-6), but the stock room is now gone and has been converted to medical space. Inven- tory investment is kept low, yet the wards have better command of their materials and better access to more supplies than previously. VMC staff estimate that in the first dozen years of imple- mentation, volumes climbed by a factor of 10 or more, while truck activity remained constant. The net effects of this system are more productive utilization of capital by VMC, improved ser- vice to patients, lower healthcare costs to the public, and a more competitive healthcare indus- try in a region that depends on it—plus effective management of truck VMT. Lessons and Conclusion Cities commonly suffer through circumstances like those that VMC faced: disparate users sit- uated in constrained facilities cause excessive delivery activity for goods. One solution tried in Europe and elsewhere under various management approaches has been the urban consolidation center. Its central concept is the requirement that all deliveries and pickups in an urban district be funneled through a staging center that consolidates shipments to reduce truck traffic (and often to ensure the use of low-emission vehicles and off-peak hours). These typically have been government-initiated programs, although the more successful ones have deferred heavily to pri- vate stakeholders in operational management. 78 Guidebook for Understanding Urban Goods Movement Source: Halcrow. Exhibit 7-6. Inside VMC’s main dock.

The VMC logistics system is a purely private solution. Its motivations are higher service lev- els, lower costs, and the more productive use of private capital and assets. Truck VMT reduc- tions and smaller public health burdens are byproducts the system does not strive for, yet they are real benefits nevertheless and valuable to public planners. VMC is not unique in its logistics model—3PLs have introduced the same core features across the healthcare industry and around the country, and numerous hospital groups have adopted them. On the one hand, medical sup- ply management is a specialty business where the large size of customers has been helpful in tak- ing control of distribution methods from producers. On the other hand, 3PLs make a business out of specialties and one role public agencies potentially can play is to organize small customers into large negotiating bodies. The key lessons from VMC are that private motivations can align with public purposes in very desirable ways, and that private markets at a minimum can further these purposes—and perhaps be allied with, and encouraged, as well. The first step for a private planner seeking such benefits is to understand the methods of supply management employed by the businesses in its district. References and Sources United States Department of Census, population statistics and projections available online at www.census.gov Facts 2010 and Facts 2007, Vanderbilt Medical Center: http://www.vanderbilt.edu/about/history “Growth of Medical Center’s Campus Outlined at Meeting,” Vanderbilt Medical Center Reporter, February 29, 2008, available online at http://www.civitas-initiative.org Private interviews with Vanderbilt Medical Center staff in 2004 and 2009. London: Reducing Freight Impacts via Out-of-Hours Deliveries Background The city of London is the largest metropolitan area in the United Kingdom and the largest urban zone in the European Union. There are approximately 7.5 million residents in Greater London (2007) with a population density of 4,542 inhabitants per square kilometer, more than 10 times that of any other region in the United Kingdom. The population of London is projected to grow by 900,000 people to a total population of 8.3 million by 2025. As a commerce center, London generates approximately 20 percent of the United Kingdom’s GDP, and is one of the world’s major international finance hubs. More than half of the United Kingdom’s top 100 listed companies (the FTSE 100) and over 100 of Europe’s 500 largest com- panies are headquartered in central London. Over 325,000 people are employed in London’s financial services sector alone. London is also a major tourist attraction that hosts some 15 mil- lion international visitors every year. Road congestion is the biggest cost to the movement of freight in London with around 82 percent of freight being moved by trucks. Congestion costs the freight industry around £800 million per year. Population growth projections suggest that freight activity could increase by up to 15 percent over present levels by 2025. Central London attracts 180,000 light trucks and 60,000 heavy trucks each day. Commercial trucks travelled 5.6 billion vehicle kilometers on London roads in 2007. Approximately 60 per- cent of all commercial vehicle kilometers were attributed to company-owned light trucks in London between 2003 and 2005, reflecting the importance of the service sector as a freight vehi- cle trip generator. The impact of freight activity in terms of on-street waiting time in the capi- tal is highlighted by the fact that 33 percent of warden-issued penalty charge notices (PCNs) and 59 percent of camera PCNs (fines for vehicle parking/loading) were issued to commercial vehicles in 2008. Case Studies 79 Principal Findings Out-of-hours deliv- eries (OHDs) are best suited to large businesses operat- ing centralized dis- tribution systems fed from a regional distribution center because they can justify the additional staff costs in man- ning the facility out of hours, and also have the potential for handling vehi- cles off the public

Safety and emissions are significant issues associated with truck traffic in London. In 2007, 419 people were killed or seriously injured in collisions involving commercial vehicles in the capital. The situation has been steadily improving (this was 46 percent lower compared to the annual average between 1994 and 1998). It also is estimated that commercial trucks account for approx- imately 25 percent of CO2 emissions resulting from transportation in London. Across London, planning and environmental health restrictions limit when retailers and busi- nesses can take delivery of goods and services. Individual boroughs (32 across London) decide on their own delivery restrictions, primarily to protect residents from noise disturbances. It is typical for commercial truck activity to be restricted between 10 P.M. and 7 A.M. Parking and unloading restrictions are indicated by yellow lines on the roadside, as well as “red routes” designed to keep specific key arterial routes clear of parked vehicles in the capital. Red routes prohibit vehicles from stopping adjacent to the pavement from 7 A.M. to 7 P.M., Monday through Friday. Loading bays are provided at selected locations along the routes where loading/unloading activities can take place from 10 A.M. to 4 P.M. with a maximum dwell time of 20 minutes per operation. The Story London’s transportation strategy, Transport 2025: Transport Vision for a Growing World City, focuses on measures to address congestion and reduce CO2 emissions while at the same time sup- porting London’s sustainable economic growth. In particular, freight strategies look at balancing demand between modes, with an eye toward changes driven by technology and new operating practices. Out-of-hours deliveries (OHD) offer one suite of measures to enable more sustainable movement of goods in the capital. The London Freight Plan published in December 2007, encour- aged communities to examine OHD strategies within the Greater London area. Within central London, the following four types of delivery restrictions can exist: • Planning restrictions are imposed at the time of planning consent for developing the premises. In the United Kingdom, restrictions specifically related to delivery activity may be contained within terms-of-use stipulations in the planning consent, typically drawn from suggested restrictions contained within planning policy guidance, issued by central government. • Environmental health restrictions are most often in the form of Noise Abatement Notices; they may be imposed at any time and are designed to preserve the quality of life of local residents. • Local voluntary agreements are decided at the local level and often are exercised as a volun- tary good code of practice outlining when deliveries should not be made. Voluntary restric- tions can be imposed by law if members of the public complain about noise disturbances. • Highway-related traffic management restrictions are national-level decisions that can include local loading/unloading restrictions or larger schemes such as the London Lorry Control Scheme (LLCS). The LLCS restricts the movements of goods vehicles greater than 18 tons dur- ing the night and weekends. The LLCS is a permit-type scheme, requiring the use of specified routes to access premises, the reality of which means that the most direct access route can often not be used leading to inefficient, circuitous routes being taken to avoid key residential areas. OHD is a strategy addressing deliveries made during periods when local nighttime restrictions may apply or during other periods when delivery restrictions apply. OHDs can • Improve driver and fleet productivity; • Improve the environmental footprint of the logistics operation by operating vehicles more efficiently during times when there is less congestion; and • Reduce the wider impacts (e.g., crashes, noise, and parking) of logistics operations on the local area. 80 Guidebook for Understanding Urban Goods Movement highway. OHDs have been shown to (1) improve driver and fleet productiv- ity, (2) reduce the environmental foot- print of the logistics operation by oper- ating vehicles more efficiently during less congested peri- ods, and (3) reduce the wider impacts (crashes, noise, parking, etc.) of logistics operations on the local area. Existing legislation (related to noise levels and access hours) is often the major hurdle to more widespread adoption.

To help local authorities facilitate nighttime deliveries, the Department for Transport (DfT) published Delivering the Goods: Guidance on Delivery Restrictions (Department for Transport 2005), which set out to inform local authorities on how to implement and enforce delivery restrictions within their areas. This accompanied guidance on nighttime deliveries by the Freight Transport Association. Delivering the Goods, a toolkit for improving nighttime deliveries, was designed to help logistics providers set up pilot trials for OHD, while highlighting the important role local authorities have to play in protecting the interests of local residents. In London, there also are incentives for commercial vehicle operators to implement OHD strategies. The London Congestion Charge adopted in 2003 levies a £10 daily access charge (as of January 2011) to all vehicles entering the center of London between 7 A.M. and 6 P.M., Mon- day to Friday. Vehicles entering the zone are tracked using close-circuit TV and are given a set time to pay the charge after entering the zone. OHDs made outside the charging period, in addi- tion to greatly improving fleet efficiency, also can save money on access charges. In a study of the potential for OHDs in London undertaken by Transport and Travel Research Ltd. (2008), retailers who operate their own fleets were more likely to be interested in the OHD concept than those relying on contracted transportation services. This was due to pri- vate fleets being more likely to give their own drivers direct access to their stores without secu- rity concerns. The results suggested local authorities were interested in aiding businesses in developing OHD strategies provided that local noise regulations were not compromised and industry-led solutions (e.g., noise curtains, rubber floor mats, and driver training) applied whenever possible. Sainsbury’s is the third largest supermarket chain in the United Kingdom with approximately 537 supermarkets and 335 convenience stores in their network. The Sainsbury’s store in the bor- ough of Wandsworth was originally served with a Noise Abatement Notice in 2001, meaning that deliveries could not be received between midnight and 6 A.M. In 2007, Sainsbury’s undertook a trial delivery program to evaluate impacts associated with moving to nighttime deliveries in the borough of Wandsworth. The Noise Abatement Society (NAS)—a working group of Sainsbury’s and the Wandsworth Borough Council—developed a framework to have nighttime restrictions lifted at the Sainsbury’s supermarket in Wandsworth for a 3-month period to conduct the trial. The purpose of the trial was to quan- tify whether nighttime deliveries had any detrimental impact on local residents or the wider community. For the OHD trial, the delivery profile that had been imposed on the market in Wandsworth was amended to incorporate specific deliveries during the previously restricted period between 1:30 A.M. and 3:00 A.M. Sainsbury’s developed a series of operating rules for these deliveries that stipulated • All vehicle engines must be switched off when stationary. • No empty roll cages are to be loaded during nighttime deliveries. • Rubber matting must be installed at appropriate locations to reduce the noise of the roll cages. • Doors must not be slammed and cab radios must be switched off when doors are open. • The distribution center must contact the Wandsworth store when the vehicle leaves to give an estimated time of arrival at the store. • A designated telephone line was to be established by the NAS and advertised at the store for complaints to be evaluated and acted upon immediately. If approached by a member of the public, staff should immediately direct complainants to the store manager or the NAS com- plaint line. A noise monitoring survey also was undertaken to quantify before-and-after trial noise levels from deliveries made to the store. Case Studies 81

Between October and December 2007, the Sainsbury’s-Wandsworth ODH delivery trial • Reduced the maximum recorded noise level during roll cage unloading by 8 to 10 decibels. (This was primarily attributed to the use of “dock curtains” on the loading bays to contain the noise from inside the trailer.) • Reduced average delivery vehicle journey times by 60 minutes over a round trip from the dis- tribution center. • Produced a saving in drivers’ time of 2 hours per day, equal to 700 hours or £16,000 per year. • Removed 700 vehicle journeys from the road annually (2 per day during the congested period), which is equivalent to a 68-ton reduction in CO2, and a 700-liter per year savings in fuel. • Improved mean vehicle turnaround times at the store by 37 minutes. • Increased overall staff productivity by 15 percent and improved product availability. • Increased average sales by between 5 percent and 6 percent because of product availability at store opening time. Lessons and Conclusion Although ODH strategies appear to be a fairly simple, straightforward solution to urban deliv- ery problems, existing laws and regulations are often major hurdles to widespread adoption. Large retailers are usually very aware of the different restrictions placed on their store operations, and one of the most common grievances among freight operators in London is the inconsistency in regulations and enforcement between authorities, as well as the level of PCNs issued to delivery vehicles. Other challenges potentially limiting the implementation of OHD strategies include • Noise generated by loading and unloading operations (e.g., tail lifts, roll cages); • Time-specific deliveries requiring arrival within specified time windows; • Lack of staff to receive deliveries during out-of-hours periods; • Security concerns related to the vehicle, load, and driver; and • The LLCS, which restricts the routes that can be used by lorries (trucks) over 18 tons at night and over the weekend. While helping to protect residential nighttime amenities, the scheme can sometimes lead to an increase in fuel use and emissions and deter journeys at less con- gested times of the day. London’s experiences to date with OHDs occurring outside the charging period suggest that, in addition to greatly improving fleet efficiency, truck operators also save money on access charges. In addition, research on London’s system suggests that OHD strategies are most effec- tive where local authorities assist businesses with developing such strategies to ensure that local noise regulations are not compromised and that industry-led solutions (e.g., noise curtains, rub- ber floor mats, and driver training) apply whenever possible. References and Sources Transport for London (2010) London Freight Data Report, prepared by the University of Westminster for TfL Freight and Fleet, available online at http://www.tfl.gov.uk/microsites/freight/documents/London_Freight_ Data_Report_2009_final_10-06-2010_UoW.pdf Freight Transport Association (2007) “Night-Time Deliveries—Wandsworth Trial,” available online at http:// www.fta.co.uk/export/sites/fta/_galleries/downloads/night_time_deliveries/nighttime_deliver_wandsworth. pdf Department for Transport (2005) Delivering the Goods: Guidance on Delivery Restrictions, available online at http://www.dft.gov.uk Transport and Travel Research Ltd., (2008) Out-of-Hours Deliveries in Central London, prepared for the Central London Freight Quality Partnership, available online at http://www.londonsfqps.co.uk/LinkClick.aspx?filet icket=b%2BPtq06WfK8%3D&tabid=178&mid=538 82 Guidebook for Understanding Urban Goods Movement

NICHES, (2007) Innovative Approaches in City Logistics: Inner-City Night Delivery, available online at http:// www.niches-transport.org/fileadmin/archive/Deliverables/D4.3b_5.8_b_PolicyNotes/14683_pn7_night_ delivery_ok_low.pdf London Freight Quality Partnerships Network (2010), available online at http://www.londonsfqps.co.uk/ Home.aspx Bristol (United Kingdom): Reducing Freight Impacts through Consolidation Centers Background Bristol, England, is the largest urban area in the southwest region of the United Kingdom (see Exhibit 7-7), covering approximately 110 square kilometers. In 2009, the city of Bristol had an estimated population of 433,100. Bristol has an estimated drive-to-work population of over 1 mil- lion, and is considered one of the most congested cities in the United Kingdom with average peak- hour traffic speeds of approximately 16 mph. In the city center, the main retail area of Broadmead receives 100,000 deliveries per year, contributing to congestion and harmful emissions. Bristol is a regional center for industry, commerce, education, and culture, and serves as a major transportation hub providing a gateway to the southwest region of the United Kingdom via the M4 and M5 motorways. In addition, the Bristol Temple Meads Train Station is on a strategic national rail network. Bristol has 48 distinct shopping areas collectively offering over 940,000 square meters of floor space (retail, leisure, and other services). The city is unusual in Case Studies 83 Source: http://www.progress-project.org/Progress/pdf/Chapter%20A%20Bristol.pdf Exhibit 7-7. Location of Bristol in the southwest United Kingdom.

that independent retailers occupy 70 percent of all retail units (49 percent of floor space) and form unique shopping attractions, drawing people into the area. Unlike the traditional single city center shopping experience offered in many United Kingdom cities, Bristol has several specialty retail areas (e.g., Queens Road/White Ladies Road, Christmas Steps/Michaels Hill, and Clifton Village), each with its own unique retail experience. Noteworthy items are • Average peak-hour traffic speeds down to 16 mph in some parts of the city (23 percent of trav- eling time within the city can be spent stationary in traffic queues); • Road freight that accounts for approximately 81 percent of total freight ton-km moved in the area; • The city center retailing area, Broadmead, which receives 100,000 deliveries per year con- tributing to congestion, traffic-related air pollution, and vehicle conflict; and • The Council’s Local Transport Plan and Air Quality Action Plan, which recognizes the need to minimize the impact of freight vehicles while ensuring the economic vitality of the city center. The Story Truck movements contribute to the congestion and pollution problems found in Bristol, as well as other issues relating to road safety, negatively affecting the condition of the roads and causing conflicts with other road users. The City Council’s transportation strategy, set out to support the economy of the city and the effective delivery of goods, is seen as essential to achiev- ing this aim. At the same time, however, it is widely recognized that the impacts of trucks enter- ing the city center needed to be minimized based on research suggesting that the average retail business may be receiving up to 10 “core goods” and 7 service vehicle visits per week (Cherrett et al. 2009). Bristol City Council’s Local Transport Plan and Air Quality Action Plan both state the need to reduce the impacts of trucks without adversely affecting the economic vitality of the city center. In response, the Bristol City Council set out to 1. Establish a local freight network in the form of a Freight Quality Partnership (FQP) to pro- mote and facilitate the efficient, economic, safe, and sustainable distribution of freight in Bris- tol and the surrounding area; 2. Introduce access control and priority measures to improve efficiency while minimizing the impact of freight movements in conjunction with the redevelopment of the core shopping area; and 3. Through the use of the Freight Consolidation Center (FCC), achieve a 50 percent reduction in associated delivery trips and a doubling of load factors related to consolidated reverse flows. A key issue from the outset was the lack of dialogue and understanding between the local authorities and the freight sector in terms of individual user needs. To address this, Bristol estab- lished a local freight network in 2003, which took the form of an FQP. The aim of this partner- ship was to promote and facilitate the efficient, economic, safe, and sustainable distribution of freight in Bristol and the surrounding area. It consisted of 17 organizations including 4 neigh- boring communities, logistics providers, and retailers. The Bristol FCC opened in 2004, consisting of a 5,000-square-foot warehouse operated by Exel Logistics, on an established industrial estate (Emerald Park), 11 km northwest of Bristol close to both the M4 and M5 motorways. There are benefits resulting from a multi-user FCC as a means of reducing truck impacts in an urban center. The definition of a FCC in this context (DfT 2010) is A consolidation center allows the grouping of individual shipments or partial loads from different sup- pliers/logistics providers, destined for the same locality, so that a smaller number of full loads can be trans- ported to their final destination. 84 Guidebook for Understanding Urban Goods Movement Principal Findings Freight Consolida- tion Centers (FCCs) can reduce truck traffic levels in urban areas, alter the type of truck used (e.g., fewer light or very heavy trucks), reduce the environmental impacts associated with truck activity, improve the effi- ciency of urban freight transport, and reduce the need for goods storage and logis- tics activities near the urban core.

An FCC is usually implemented for one or more of the following reasons (Browne et al. 2005): • To reduce truck traffic levels (reducing truck movements in the urban area through improved consolidation or modal shift); • To alter the type of truck used (e.g., fewer light or very heavy trucks); • To reduce the environmental impacts associated with truck activity (i.e., through a reduction in total trips and/or greater use of environmentally friendly vehicles); • To improve the efficiency of urban freight transport operations (through improved load fac- tors or fewer deliveries); and • To reduce the need for goods storage and logistics activities near the urban core (offering stor- age facilities at the FCC, as well as other value-added services). The Bristol FCC serves the Broadmead area of Bristol’s urban core where over 300 retailers are located. The Bristol Consolidation Centre (BCC) is serviced by two delivery vehicles (a 7.5-ton and 17.5-ton rigid) and is testing the use of a 9-ton Newton electric truck built by Smith Electric Vehicles that can travel at 50 mph and has a range of 100 miles on a single 6- to 8-hour charge. To act as a “stick” and enhance the appeal of the Bristol FCC to retailers, Bristol City Council restricted freight vehicle access times to the main pedestrian portion of the retail area from 5 A.M. to 8 A.M., and 6 P.M. to 8 P.M., and accompanied this restriction with a strict requirement for trucks to use a one-way route system. Lessons and Conclusion Logistics providers/suppliers’ vehicles with goods destined for city center retailers deliver into the Bristol FCC where items are stored. Once a vehicle load has been consolidated, the goods are loaded out in roll cages via one of the three dedicated Bristol FCC service vehicles into the city center for a round-robin style delivery. When launched, the consolidation center was 100 percent publicly funded, with time-limited financial assistance (2002–2006) coming through the VIVALDI (Visionary and Vibrant Actions through Local Transport Demonstration Initiatives) Project. Since 2006, efforts have been made to move to a business model based on maximum cost recovery from the participating retailers. In 2007, the BCC was serving 64 retailers whose combined delivery vehicle movements had fallen by 75 percent (6,945 vehicle movements) over the pre-BCC case. This direct reduction in vehicle movements equated to an annual savings of 178,000 vehicle kilometers, 20.3 tons of CO2, 660 kg of NOx, and 19.7 kg of PM10. In addition, reverse logistics resulted in 12.9 tons of consol- idated cardboard and plastic being collected from the 64 retailers and recycled. The logistics of the delivery system proved to be very reliable with 100 percent on-time deliv- eries, no recorded loss or damage to stock, and the majority of retailers reporting savings on the previous mean delivery times, some in the order of 20 minutes. Consequently, 38 percent of the participating retailers indicated that this enabled their staff to spend more time with customers, with 45 percent stating that staff morale had been improved. Ninety-four percent of the partic- ipants stated that they would recommend the BCC to other retailers. References and Sources Cherrett T. J., McLeod F. N., Maynard, S., Hickford, A., Allen, J., Browne, M. (2009), “Understanding Retail Supply Chains to Enable ‘Greener’ Logistics,” 14th Annual Logistics Research Network Conference, 9–11 September 2009. Cardiff University. DfT (2010), Freight Consolidation Study (prepared by TTR and TRL), available online at http://www.dft.gov.uk/ pgr/freight/research/freightreport/ Case Studies 85

Browne, M., Sweet, M., Woodburn, A., Allen, J. (2005), Urban Freight Consolidation Centres Final Report, Trans- port Studies Group, University of Westminster, available online at http://freightbestpractices.org.uk/urban- freight-consolidation-centre-report Anonymous (2006) Broadmead Freight Consolidation Scheme, Niches project, available online at http://www. osmose-os.org/documents/118/Os_Aw_Appl_Bristol.pdf Anonymous (2008) D2.4 Report on Partnerships, START (Short Term Actions to Reorganize Transport of Goods) Project Report, available online at www.startproject.org/. . ./D2.4%20Reporton%20Partner ships%20FINAL.pdf Anonymous (2008) D2.1 Integrated Demonstration Report, START (Short Term Actions to Reorganize Trans- port of Goods) Project Report, available online at http://www.start-project.org/downloads.html DfT (2010) Freight Consolidation Study (prepared by TTR and TRL), available online at http://www.dft. gov.uk/pgr/freight/research/freightreport/ Anonymous (2010) West of England Joint Local Transport Plan 3, Freight Supplementary Document, draft for consideration at 20th September 2010 meeting of the Bristol & Neighbouring FQP, available online at http://www.travelplus.org.uk/media/186924/network%20management%20and%20freight.pdf Anonymous (2010) West of England Partnership, Joint Local Transport Plan Progress Report 2009/10, available online at http://www.westofengland.org/media/187971/item%2010%20jiltp2%20progress%20report.pdf Anonymous (2010) Freight Consolidation Study (South East Scotland Transport Partnership), report produced by Scott Wilson Ltd., available online at http://www.sestran.gov.uk/uploads/Freight%20Consolidation% 20Centre%20Study%20-%20Final%20Report.pdf Anonymous (2006) Vivaldi project, D12 Final Publishable Report, available online at http://www.transport- research.info/Upload/Documents/200909/20090917_164909_1792_VIVALDI%20-%20Final%20Report.pdf Joint Local Transport Plan 3, 2011–2026: Network Management and Freight Supplementary Document, Engage- ment Draft, July 2010, available online at http://www.travelplus.org.uk/media/186924/network%20man agement%20and%20freight.pdf New York City: Commercial Vehicle Regulation and Off-Peak Delivery Background New York City has been regulating commercial vehicle operations for nearly 100 years. Com- mercial vehicles are essential to the commerce and services of America’s largest city; New York City hosts a population of more than 8 million in an area of just 300 square miles. Stacey Hodge, Direc- tor of the Office of Freight Mobility for the New York City Department of Transportation (NYC- DOT), understood that trucks were both a blessing and a curse. Without trucks, New York City’s retail and entertainment businesses would come to a halt, but adding trucks to an already overbur- dened street and highway network often brought traffic to a standstill. It took nearly 100 years for one of the most complex truck route and truck regulation schemes in the nation to evolve—now NYCDOT sought to simplify the truck regulation scheme, while improving effectiveness. In 2007, NYCDOT completed a 4-year study effort: The Truck Route Management and Com- munity Impact Reduction Study, completed by a consulting firm. The study sought to “coordi- nate engineering, education, information, and enforcement efforts to mitigate the negative impacts relating to truck traffic, as well as to improve the overall truck management framework that exists in the city of New York.” After completing the truck route study in 2006, one of the first actions taken by NYCDOT was to create a new Office of Freight Mobility. Stacey Hodge, who had spent 10 years in the private sector consulting as a transportation engineer and planner, joined NYCDOT in spring 2007 to lead the Office of Freight Mobility. As Hodge came on board, she was confronted with the fol- lowing list of issues identified by the truck route study just completed: • New York City had experienced a 35 percent increase in truck volumes over the past 20 years with no comprehensive changes to the regulations or policies governing truck access and no changes in the number of truck route miles (street capacity) to meet this demand. 86 Guidebook for Understanding Urban Goods Movement Principal Findings For effective enforcement, it is essential that all traffic and law enforcement offi- cers have details of truck route and waiting rules for their district. In addition, simple guidance signage should be consid- ered for aiding truck drivers through urban areas (e.g., “green” and “red” route signage to denote acceptable and unacceptable routes, respec- tively). Also, out- of-hours delivery is an effective way of maximizing effi- ciency in delivery and collection schedules.

• Current truck regulations in the city were based on standards put in place over 20 years ago. During the last truck route study, completed in the early 1980s, a 55-foot vehicle design stan- dard was in place. National fleet trends had increased the design limit to 65 feet. Most streets in New York City were not designated to safely accommodate these larger vehicles. • Enforcement efforts were lacking because of the overly complicated regulatory scheme imposed on trucks in the city. The comprehension of truck regulations was limited in both the New York Police Department (NYPD) and among judges who adjudicated summonses. • Only 5 percent of the city’s streets were designated as truck route streets. Most designated truck routes operated at or near capacity. • Signs were one of the most critical tools for managing the city’s Truck Route Network; how- ever, there were several problems with the current signage program: – The city had multiple designs for truck route signs. Although the differences are subtle, the lack of consistency fosters confusion among truck drivers. – The placement of truck route signs at intersections was inconsistent, affecting driver recog- nition and reaction time, as well as driver actions at decision points. – Truck route sign panels were not always visible. The message on some panels was not clear because of weather, sun exposure, or graffiti. In other cases, truck route signs were blocked from view by another sign. • A survey of freight stakeholders revealed that most stakeholders had limited knowledge or did not understand New York City’s truck route regulations. • NYPD recruits trained at the Police Academy are inundated with a great deal of information on rules and regulations. Traffic rules are just one small component of their training. As a result, most officers on the street have a very limited working knowledge of the Truck Route Network. The Story Eager to develop an action plan for addressing as many of the issues identified by the truck route study as possible, Hodge realized that truck issues would have to compete for limited resources against a wide array of other transportation issues. Without much political clout, freight issues often took a back seat to other constituent transportation concerns. A necessary step in making the new Freight Mobility Office successful was to communicate the office mission and identify its champion to those public partners from which the office would need support. In November 2007, Commissioner Janette Sadik-Khan sent a letter to all elected officials in New York State introducing them to the new office and describing initiatives the office would pursue to address truck management and goods movement in New York City. One of the first initiatives undertaken by the Freight Mobility Office built upon existing reg- ulations to make them more effective. New York City did have designated truck routes. Dated and less than optimal, New York City regulations required commercial trucks to operate only on designated truck routes unless a delivery required the use of a non-designated route (Section 4-13(e) of New York City Traffic Rules). Designated truck routes, however, were rarely enforced unless citizens complained, and directional signs were often difficult for truck drivers to follow. Off- route trucks were not only an aggravation for city residents; they were also costing New York City millions of dollars in bridge rehabilitation and maintenance. In 2007, there had been 64 reported incidents of trucks striking low bridges or overpasses; in 2008, there were 98 reported truck-bridge incidents. Many of these incidents were the result of trucks traveling on the park- way system, which is off-limits to trucks. NYCDOT recognized the immediate benefits that could be derived from improving compliance with the existing route network while also communicating better with truck drivers about low clear- ance bridges and truck routes. To accomplish these goals, the following initiatives were advanced. Case Studies 87

• The NYPD Truck Enforcement Program. In 2007, NYCDOT released an electronic online version of the city’s first comprehensive citywide truck route map. The online map provided detailed routing information for all five boroughs, regulatory information, and contact infor- mation for useful truck and commercial vehicle resources. During 2008, the city distributed 74,000 truck route maps. However, NYPD realized that better public information about truck routes would not solve the route compliance issues alone. Without more proactive enforce- ment of network violations, the information campaign would be less effective. As a result, the Police Placard Pilot Program was launched to provide officers with the resources to enforce truck network violations at the precinct level. Only 4 of the city’s 76 precincts were included in the initial pilot. • Truck Route Signage Pilot. Another recommendation from the truck route study was to undertake efforts to improve the city’s truck route signs. Nationwide, the design of traffic signs on public roadways is prescribed by the Manual on Uniform Traffic Control Devices (MUTCD). MUTCD is published by FHWA under 23 Code of Federal Regulations (CFR), Part 655, Sub- part F. In 2008, NYCDOT petitioned FHWA to conduct a truck route signage pilot program that would allow the city to experiment with new truck route sign designs to make the signs more identifiable to truck drivers. • The Delivery Windows Program. The objective of the delivery windows program was to make curb space available for delivery trucks. By reducing the number of trucks double parking, traffic congestion can be reduced and air quality improved. In addition, reason- able curbside access supports the New York City economy by improving the efficiency of truck deliveries. In New York City, most retailers and grocery stores do not have off-street loading docks, and on-street parking is typically occupied by passenger vehicles, which forces delivery vehicles to double-park and cause traffic congestion. To address curbside access, NYCDOT implemented a multi-pronged approach. By working with merchants and through curb utilization surveys, information was gathered in specific neighborhoods regarding peak demands for curbside access. Using the data gathered, delivery windows were installed alongside a protected bike lane with offset parking on Columbus Avenue in Manhattan, First and Second Avenues in Manhattan, along the Fordham Road Bronx Bus Rapid Transit (BRT) route, and were planned for Church Avenue in Brooklyn in January 2011. In addition to improving existing programs, the Freight Mobility Office also sought inno- vative win-win solutions for addressing other urban freight issues like curbside access for delivery trucks. Many companies operating in New York City had grown accustomed to pay- ing millions of dollars in parking fines on an annual basis, because double-parking delivery vehicles had become a way of doing business on New York City’s busy streets. • Off-Hours Delivery Program. In 2009, the Office of Freight Mobility formed a partner- ship with Rensselaer Polytechnic Institute, Rutgers University, the Rudin Center at NYU Wagner, and ALK Technologies on a USDOT-funded program to encourage off-peak deliveries between 7 P.M. and 6 A.M. The pilot ran from late 2009 through early 2010, with encouraging results for the 33 participants. The participants included a diverse group of 8 delivery companies (carriers) and 25 business locations (receivers) that participated in the pilot for at least 1 month, and included restaurants and retail stores. Lessons and Conclusion The Police Placard Pilot Program was well received by NYPD. Now, NYPD officers in all 76 police precincts receive inserts for their memo books that detail truck route rules in their 88 Guidebook for Understanding Urban Goods Movement

precinct. Fully implemented in 2008, the NYPD memo insert program heightened officer under- standing of the truck route system. NYPD also added truck route summonsing to their Traffic- Stat data monitoring program, and these efforts together have contributed to an increase in truck route enforcement. The first generation of new experimental truck route signs incorporated a green circle, the universally accepted symbol for positive guidance, into the existing conventional sign. A pro- hibitive route sign incorporated the red circle and diagonal. The pilot signage program was implemented in the Hunt’s Point area of the Bronx, and NYCDOT continues to evaluate the results of this program. Feedback from the off-hours delivery program suggested that fewer deliveries during normal business hours allowed shops and restaurants to focus more on their customers. In addition, receivers said their staffs were more productive because they waited around less for deliveries that were tied up in traffic. Carriers found that their trucks could make more deliveries in the same amount of time because their service time at a receiver’s location was reduced from 1.8 hours to 0.5 hours. They also saved money on fuel costs and could use a smaller fleet by balancing daytime and nighttime deliveries. Legal parking was more readily available during these hours, and drivers reported feeling safer and less stressed. The study also found that travel speeds from a truck depot in New Jersey to a delivery driver’s first stop in Manhattan improved by 75 percent. Reviewing the accomplishments of the Office of Freight Mobility in its first 3 years, Hodge was most proud of the advances made in opening lines of communication between the various units within NYCDOT responsible for regulating commercial vehicles. Before the Office of Freight Mobility, there was no single point of contact in city government for commercial vehicle oper- ators. Today, the office is the face of freight for NYCDOT. Extensive stakeholder and community outreach aided the progress of the Office of Freight Mobility, but each outreach effort had been specific to each program, requiring extensive time and resource commitments. Moving forward, Hodge and her team will explore opportunities to institutionalize stakeholder outreach through some form of public-private freight committee that would foster trust and get the private sector solidly behind NYCDOT efforts to increase efficiency. References and Sources Truck Route Management and Community Impact Reduction Study, “Executive Summary,” New York City Department of Transportation, Edwards and Kelcey, Inc. March 2007, p. 1. The NYCDOT Citywide Truck Enforcement Fact Sheet, available online at http://www.nyc.gov/html/dot/motorist/ trucks.shtml Commissioner’s Corner Monthly Letter, “When Trucks Strike Back,” August 2008, available online at http:// www.nyc.gov/html/dot/html/about/corner_august.shtml Commissioner’s Corner Monthly Letter, “Off-Hour Delivery,” July 2010, available online at http://www.nyc. gov/html/dot/html/about/corner_july2010.shtml Buffalo: Brownfield Redevelopment for a Logistics Hub Background In 1900, Buffalo, New York, was the eighth largest city in the United States, and the nation’s second largest railroad hub. During World War II, Buffalo’s Bethlehem-Lackawanna Steel Plant was the largest steelmaking operation in the world, employing 20,000 workers on a 1,300-acre site. In the late 1970s, however, global competition brought great quantities of imported steel to Case Studies 89

the United States and Bethlehem Steel began reducing its workforce at the Lackawanna plant. In the early 1980s, Bethlehem Steel closed most of its steel making operations in Buffalo. By 2010, with 267,703 residents, Buffalo had slipped to 70th place in population among U.S. cities. In 2006, to address the impacts of the changing economy and declining population of West- ern New York State, the two counties comprising the Buffalo metropolitan region—Erie and Niagara—embarked on developing a framework for regional growth, as follows: In addition to the effects of national and international-level influences—global competition and free trade, unfunded mandates from state and federal governments, and the rise of the sunbelt—decisions about the pace, pattern, and form of development have affected the region’s ability to attract investment and retain talent. Although the framework acknowledged the limitations counties have in affecting the planning authority of municipal governments in New York State, it was developed as a resource for regional leaders to leverage limited resources and provide consistent direction and useful sup- port to municipalities in both counties. One of the issues raised in the Erie-Niagara Framework for Regional Growth study concerned the inventory of investment-ready commercial and industrial land-use sites. As of 2006, when the framework was published, “the counties have identified only 2,220 acres of land available for industrial and commercial development, and only 9 of the 38 individual sites identified are more than 100 acres.” To address this deficiency, the report recommended the following strategies for supporting economic development and freight transportation: • Expand on previous “shovel-ready site” assessments and develop a regional inventory and marketing strategy for vacant, underutilized, and brownfield properties, and support the preparation of conceptual development plans and marketing strategies for sites best posi- tioned to support regional economic development objectives. • Encourage localities to preserve and properly zone larger-scale vacant and underutilized sites with potential to accommodate research and development, technology, manufacturing, and distribution enterprises. • Support efforts to: (1) plan and zone for employment-intensive commercial and industrial development on sites with ready access to the region’s highway and rail networks; (2) recog- nize areas well served by public transportation as catalysts for higher density development and reinvestment in regional centers and growth corridors; and (3) improve access to, between, and within regional centers and growth corridors. The Story In 2008, building on the regional growth initiative, the executive leadership of Erie County adopted its own strategy for economic development within the framework established for the region. Erie County’s Road to a Bright Future established a strategy to capitalize on the county’s position as an international gateway rather than focus on job and population loss. To succeed as a community, the definition of economic development can no longer be to just give away tax incentives or low-cost loans. Instead, we must develop our area’s economy through articulation and the support of a community vision that guides public investment, drives private investment, and provides decisive execution with a foundation of good planning. By virtue of its location and existing freight transportation assets, Erie County and the sur- rounding region is well positioned to expand its role in international and domestic logistics. The availability of industrial land such as the former Bethlehem Steel plant site and other real estate 90 Guidebook for Understanding Urban Goods Movement Principal Findings In urban areas focused on redevel- opment of under- used or brownfield lands, considera- tion of access and logistics needs should be a high priority for plan- ning and economic development offi- cials. Protecting and strengthening multimodal trans- portation links, access, and facili- ties that support industrial and/or commercial uses in a redevelopment zone can be an important part of attracting invest- ment and tenants to that zone. It is also important to consider the need for adequate buffer zones between such redevelop- ment and incom- patible land uses such as residential neighborhoods.

assets with access to rail, highway, and water transportation provides significant logistics devel- opment opportunities. Kenneth Swanekamp, director of business assistance for Erie County, and Christopher Pawen- ski, Coordinator for the Industrial Assistance Program, are invested in the success of their com- munity. Swanekamp has 30 years of experience in business development, and Pawenski returned to Erie County after a successful career as a project manager for a private construction firm. In Pawenski’s words, “Having grown up in the Buffalo area, and watching the economic decline, I wanted to return and give back to the community. I wanted to do my part in helping turn around our economic situation.” Swanekamp and Pawenski work as a team, with Swanekamp taking responsibilities for working with other agencies in the region and Pawenski meeting and interact- ing with the business community. Both men have a keen sense of the transportation and supply chain needs of businesses already located in the region, as well as those businesses looking to move into the area. In addition, with the rapid growth of the transportation and warehousing industrial sector, they view developments such as the Bethlehem Steel Lackawanna site, with its ready high- way, rail, port, and airport access, as an excellent employment opportunity for the region. Today, most of the former Bethlehem Steel Lackawanna site is owned by Tecumseh Redevel- opment, a subsidiary of the international steel company giant ArcelorMittal. The primary devel- opment site comprises 11,000 acres (see Exhibit 7-8). The site offers effective rail and highway access as well as access to the Port of Buffalo. Another benefit of this location is that portions of the site fall within an “Empire Zone,” a New York State Case Studies 91 Source: Erie County Office of Economic Development. Exhibit 7-8. Bethlehem Steel Lackawanna industrial site development map.

designation for a geographic area of a county or municipality that has been deemed eligible for special state tax incentives and other state and local support meant to encourage new and expanded economic development and investment. As of early 2010, Tecumseh Redevelopment was preparing a concept redevelopment plan for potential transportation- and industrial-related businesses. It is also working with state and fed- eral agencies to explore the possibility of rerouting portions of Smokes Creek, which currently bisects the southern portion of the site. Such a project would require between $15 million and $20 million in infrastructure improvements. The site also is served by the short-line South Buf- falo Railroad. Even with its limited network, the railroad would provide a connection to the facil- ity for each of the major railroads of the region. It served a similar role in the past when the steel mill was operational. The site has significant potential to help the region establish itself as a logistics hub. The site has plenty of room and good rail, water, and roadway connections. Logistics areas require large amounts of land, and this is one of the few brownfield sites in the area that has sufficient land. A number of trading opportunities have been identified that could help the Buffalo-Niagara region to establish itself as a logistics center. The region could serve as an inland hub for the Port of New York/New Jersey. Rail intermodal service between Buffalo and the Port of New York/New Jer- sey has dramatically improved in recent years. The site also could serve as a distribution hub to serve Canada. A recent study by the World Trade Center of Buffalo found that numerous Cana- dian shippers use U.S. ports and then deliver products by truck through Buffalo into southern Ontario. With improved intermodal rail service, Buffalo could serve as an intermodal hub for the southern Lake Ontario region of Canada, which is known as the “Golden Horseshoe.” County officials also are urging that development be founded on an effective planning and zoning process that would create a buffer between the heavy industrial activities on the west side of the site and the residential development adjacent to the site on the east side of Route 5. The county plan calls for light industrial (commercial) tenants to be located on the portion of the site along Route 5, while heavy industrial tenants will be located farther into the location. Lessons and Conclusion As with other properties the Erie County Office of Economic Development prepares for mar- ket, the Bethlehem Steel site needs to be made usable before attracting potential tenants. Rail lines on the site must be upgraded; currently, the lines are built to 1900 standards. Recently, the New York State Department of Transportation Multimodal Program awarded Erie County a $2 million grant to realign and modernize rail track on the property. Current plans also call for the site to be served by two to three roadway access points. Erie County has already entered into discussions with nearby residents living across Route 5 to find acceptable solutions to traffic issues. The county has stated to nearby residents that traffic will be entering and exiting only at the north and south ends of the site, away from residential areas. Using a generic environmental review process, the county is developing traffic parameters with which potential tenants would need to comply in order to avoid requirements for additional traf- fic studies. References and Sources “Buffalo Slips to 70th in City Population,” Buffalo Business First, available online at http://www.bizjournals.com/ buffalo/news/2010/11/21/buffalo-slips-to-70th-in-city-population.html Erie-Niagara Framework for Regional Growth: Final Report, 2006, available online at http://www.erie.gov/regional framework/docs/Framework%20for%20Regional%20Growth%20-%20Final%20Plan.pdf Ibid, 2006, Chapter 2, p 23. 92 Guidebook for Understanding Urban Goods Movement

Erie County’s Road to a Bright Future, Hon. Chris Collins, Erie County Executive, available online at http:// www.erie.gov/exec/?rebuild-the-economy/road-to-a-bright-future.html Erie County, Industrial Parks Report, July 2010. Case Studies—Key Findings Key findings from the nine case studies follow. 1. Long-term planning for freight in urban development is essential. Creating protected industrial zones in urban centers where there are restrictions placed by the planning authority on residential, retail, and leisure developments can safeguard commercial centers and attract new business. This policy is particularly applicable to port sites where water- front land, which is vital for vessel management, could be lost to residential development, alter- ing the land use of the area forever. Wherever possible, areas of brownfield land with good multi- modal transportation links should be safeguarded for industrial/commercial use. 2. Harmonizing truck access and loading regulations along with enforcement strategies within and across regions can bring about significant efficiency savings to both the local community and logistics providers. Unifying loading/unloading/waiting restrictions within city areas and across different cities can make urban delivery more efficient, harmonize enforcement strategies, and improve under- standing among logistics providers, their clients, and local authorities. Freight and service vehicles can be catered for in simple ways such as minimum waiting peri- ods for freight vehicles displaying a windshield “service provider” ID card, standardizing load- ing spaces, and allowing hand delivery of parcels using metro and underground services. Simple guidance signage should be considered for aiding truck drivers through urban areas (e.g., green and red route signage to denote acceptable and unacceptable routes respectively). Overweight trucks can be responsible for annual pavement and bridge repair costs of around $16 million in some cities. The implementation of innovative enforcement technologies (e.g., weigh-in-motion scales) can have a significant impact on reducing these costs. When developing a strategic truck route master plan it is important to change the mindset from one of prohibiting commercial vehicles from certain neighborhoods to effectively and effi- ciently accommodating trucks in the urban environment. This is done through dialogue with stakeholders and identifying all possible routes exhibiting truck-friendly characteristics that may be enhanced by investment, over time, to satisfy both the needs of the freight community and the communities in which they operate. For effective enforcement, it is essential that all traffic and law enforcement officers have details of truck route and waiting rules for their district. 3. Freight Consolidation Centers (FCCs) are a proven system for reducing freight vehicle impacts in urban centers and should be seriously considered as part of city planning. Key benefits to be gained from implementing FCCs are • Reducing truck traffic levels (reducing truck movements in the urban area through improved consolidation or modal shift); • Altering the type of truck used (e.g., fewer light or very heavy trucks); • Reducing the environmental impacts associated with truck activity (i.e., through a reduc- tion in total trips and/or greater use of environmentally friendly vehicles); • Improving the efficiency of urban freight transportation operations (through improved load factors or fewer deliveries); • Reducing the need for goods storage and logistics activities near the urban core (offering storage facilities at the FCC, as well as other value-added services); and Case Studies 93

• Understanding, in detail, the current methods of supply by businesses in the district and the mechanisms by which the FCC could operate (100 percent privately funded, a mixture of private/public partnership, compulsory buy-in for access to specific areas, voluntary buy-in) is of key importance to the establishment of an FCC. 4. Altering access regulations to allow out-of-hours supply can help reduce the impacts of freight vehicles on urban centers. Out-of-hours deliveries (OHDs) are best suited to large businesses operating centralized dis- tribution systems fed from a regional distribution center because such businesses can better jus- tify the additional costs in staffing the facility out of hours and can handle vehicles off the public highway. OHDs have been shown to (1) improve driver and fleet productivity, (2) reduce the environmental footprint of the logistics operation by operating vehicles more efficiently during less congested periods, and (3) reduce the wider impacts (crashes, noise, parking, etc.) of logistics operations on the local area. Existing legislation (related to noise levels and access hours) is often the major hurdle to wide- spread adoption. 94 Guidebook for Understanding Urban Goods Movement

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TRB’s National Cooperative Freight Research Program (NCFRP) Report 14: Guidebook for Understanding Urban Goods Movement is designed to help facilitate decisions that accommodate and expedite urban goods movement while minimizing the environmental impact and community consequences of goods movement.

The guidebook and cases studies are designed to help decision makers better understand the potential impacts of their urban goods movement decisions on transportation infrastructure and operations; land use and site design; and laws, regulations, and ordinances applicable to urban areas.

The guidebook includes case studies that explore how urban supply chains connect to the urban economy, infrastructure, and land use patterns; their impacts on land use codes and regulations governing metropolitan goods movement of private-sector freight providers; and planning strategies for potentially improving mobility and access for goods movements in urban areas.

The print version of the NCFRP Report 14 includes a CD-ROM that includes a report and appendices on the process that developed the guidebook, and two PowerPoint presentations with speaker notes that transportation planners may use to help explain how local decision makers might enhance mobility and access for goods movement in their area.

The CD-ROM is also available for download as an ISO image. Links to the ISO image and instructions for burning a CD-ROM from an ISO image are provided below.

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An article on NCFRP Report 14 was published in the January-February 2013 version of the TR News.

CD-ROM Disclaimer - This software is offered as is, without warranty or promise of support of any kind either expressed or implied. Under no circumstance will the National Academy of Sciences or the Transportation Research Board (collectively “TRB”) be liable for any loss or damage caused by the installation or operation of this product. TRB makes no representation or warranty of any kind, expressed or implied, in fact or in law, including without limitation, the warranty of merchantability or the warranty of fitness for a particular purpose, and shall not in any case be liable for any consequential or special damages.

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