NOTICE

The United States Government does not endorse products or manufacturers.

Trademarks or manufacturers’ names appear herein only because they are considered

essential to the objective of this document.

Dear Reader,

We have scanned the country and brought together the collective

wisdom and expertise of transportation professionals implementing

Intelligent Transportation Systems (ITS) projects across the United States.

This information will prove helpful as you set out to plan, design, and

deploy ITS in your communities.

This document is one in a series of products designed to help you

provide ITS solutions that meet your local and regional transportation

needs. The series contains a variety of formats to communicate with

people at various levels within your organization and among your

community stakeholders:

• Benefits Brochures let experienced community leaders explain in their

own words how specific ITS technologies have benefited their areas;

• Cross-Cutting Studies examine various ITS approaches that can be

taken to meet your community’s goals;

• Case Studies provide in-depth coverage of specific approaches taken

in real-life communities across the United States; and

• Implementation Guides serve as “how to” manuals to assist your

project staff in the technical details of implementing ITS.

ITS has matured to the point that you are not alone as you move toward

deployment. We have gained experience and are committed to

providing our state and local partners with the knowledge they need to

lead their communities into the next century.

The inside back cover contains details on the documents in this series,

as well as sources to obtain additional information. We hope you find

these documents useful tools for making important transportation

infrastructure decisions.

Christine M. Johnson Edward L. Thomas

Program Manager, Operations Associate Administrator for

Director, ITS Joint Program Office Research, Demonstration and

Federal Highway Administration Innovation

Federal Transit Administration
1

International Border Clearance Program Overview 2

IBC Operations Concept 4

Overview of Border Sites

Northern Border Sites 6

Blaine, WA 8

Buffalo, NY 10

Detroit, MI 12

Southern Border Sites 14

Laredo, TX 16

Nogales, AZ 18

Otay Mesa, CA 20

Significant Findings, Conclusions and

Opportunities 22
2

The International Border Clearance (IBC) program

was initiated under the provisions of the Intermodal

Surface Transportation Efficiency Act (ISTEA) of 1991.

The program was originally conceived as a means to

test the feasibility of utilizing Intelligent Transportation

Systems (ITS) technologies at border crossings to

facilitate trade and transportation safety, and expedite

the processing of commercial vehicles through ports of

entry in states along international borders. In support

of a Vice Presidential initiative to develop an

international trade processing system, the IBC program

was expanded to provide a means to help the U.S.

Treasury address requirements for improved trade

statistics and more effective import/export processing.

The IBC program directs and coordinates the

deployment of ITS technologies at international border

crossing sites for the facilitation of trade and the

enhancement of commercial vehicle safety. The

program addresses these goals by leveraging

advancements in information technology and vehicle

identification to provide federal and state agencies the

information necessary to quickly and effectively make

informed decisions regarding the cargo, vehicle, and

driver crossing the border, and the need to inspect

vehicles entering the U.S. The ability to do so will

allow vehicles, operators, and shipments to be

processed expeditiously, more accurately, and faster

than is currently possible, and result in a reduction of

congestion and environmental impacts.

Since ISTEA was enacted, ITS technologies have been

deployed and tested at seven border crossing sites—two

on the U.S./Canada border, and five on the U.S. border

with Mexico. Working closely with representatives from

other federal, state, and local agencies, systems

developers, and private shippers and motor carriers, the

Federal Highway Administration (FHWA) has sponsored

and co-funded the installation of dedicated short-range

communications (DSRC) systems, local processing

systems and networks, and connectivity to other federal

and state systems.

Work continues to further expand the utility and

value of IBC implementations through the development

of interfaces with state commercial vehicle information

systems being developed and deployed under the FHWA

ITS/Commercial Vehicle Operations (CVO) program.

The IBC program is comprised of:

(1) Technology deployments at select

border crossing sites

(2) Interfaces with existing and planned

federal and state safety and trade

processing systems

(3) Partnerships with U.S., Canada, and

Mexico transportation, customs and

immigration agencies; and

(4) Liaison with private sector stakeholders

involved with international border

crossing facilities and activities.

During FY 1997-1998 the field operational testing phase of the IBC program, the

following seven sites had ITS technologies

deployed:

• Buffalo, NY

• Detroit, MI

• El Paso, TX (limited testing)

• Laredo, TX (2 sites)

• Nogales, AZ

• Otay Mesa, CA

During FY 2000-2001, testing is being

conducted at two sites: Laredo and Detroit.

This testing was designed to demonstrate

technologies that will support using a Freight

and Trade Processing System (FTPS), which

has a direct interface with the customs

system at these sites. The FTPS or its
3

equivalent, is a system under development

which provides data that can be used to

facilitate trade and transportation at our

Nation’s border crossings. The FTPS, or an

equivalent system, will allow verification of a

commercial motor vehicle’s registration and

safety status prior to the vehicle crossing the

border.

The primary purpose for this study was to

identify examples of how IBC has made

progress toward its goals of facilitating trade

and enhancing safety. The authors compiled

information regarding experiences and lessons

learned by the agencies involved in the

implementation of IBC technologies, and

potentially impacted by their deployment.

This study represents findings gathered

from field operational test (FOT) evaluation

reports, and during interviews with federal,

state, and industry officials at six border

crossing sites:

• Blaine, WA

• Buffalo, NY

• Detroit, MI

• Laredo, TX

• Nogales, AZ

• Otay Mesa, CA
The seamless, harmonized, and timely

clearance of international commerce between and

through trading countries resulting in safe and legal

commercial operations. This vision is to be

achieved through the harmonization of

documentation, the standardization of data

elements, and the acceptance of an international

data syntax for the exchange of transportation and

trade data.

• Sixty-five (65) U.S. agencies are involved in

international goods movement monitoring,

enforcement, and measurement, including:

– U.S. Department of Transportation (USDOT)

– U.S. Treasury Department

– U.S. Customs

– Immigration and Naturalization Service

(INS)

– U.S. Food and Drug Administration (FDA)

– U.S. Department of Agriculture (USDA).

• The Office of Freight Management and

Operations within the Federal Highway

Administration is managing the IBC program.

– This office manages the installation and

upgrade ITS technologies at international

border crossings to facilitate the safe flow of

commercial trade at several field operational

test sites, with local installations supporting

multiple federal and state systems.

– This office also works to facilitate the

integration of physical architectures and

systems initiatives of federal and state

governmental agencies in the U.S., Canada,

and Mexico.

• States are responsible for the enforcement of

weight and safety laws.

– Public safety agencies (i.e., law

enforcement) weigh and inspect

commercial trucks, with the assistance of

federal Motor Carrier Safety Assistance

Program (MCSAP) inspectors at select ports.

The IBC system architecture was designed to

accommodate a wide variety of information

management and exchange scenarios among the

many public and private organizations involved

with international goods movement.

Prior to the arrival of a given commercial

vehicle at the border, trading firms (typically

through customs brokers) electronically filed the

appropriate declarations to U.S. Customs through

the North American Trade Automation Prototype

(NATAP). The NATAP was a prototype interface to

the International Trade Data System (ITDS) under

development by U.S. Treasury. These declarations

were in the form of CUSDEC (customs

declarations for cargo) and CUSCAR (customs and

immigration declarations for the carrier, vehicle

and driver) messages. The NATAP evaluated the

CUSCAR and CUSDEC data, which allowed

processing prior to the arrival of the shipment at

the border. In current tests, the FTPS will receive

the data and make it available to state motor

vehicle enforcement agencies that perform

credentials and safety screening of the carrier,

vehicle, and driver. Each agency will then return

their pre-arrival screening results to the border via

the FTPS.

Upon arrival of the shipment at the border

crossing site, a unique identifier, stored on a

transponder located in the truck cab, was read by

DSRC and transmitted to the local trade

processing system, which forwarded the unique

identifier to the NATAP in Washington D.C. The

NATAP used the unique identifier to retrieve the

appropriate consolidated pre-arrival screening

results. The NATAP then returned the results as a

recommendation to the customs inspector,

located at the border crossing site. The

recommendation authorized release of the cargo

and conveyance, or identified the need for further

review at the secondary inspection area within the

border compound. The IBC system was then used

to provide direction to the commercial vehicle

operator in the form of a “red” or “green”

response – a red indicating the need to proceed to

secondary inspection, and a green indicating

clearance to proceed to the exit of the compound.

In current tests, if the red light is the result of the

FTPS screening, the driver will be referred to the

nearest state roadside inspection facility for further

action.

4
The IBC system architecture, when completed, will

permit connectivity with state and federal commercial

vehicle information systems for safety and credentials

verification, and access by other organizations or

individuals seeking shipment status or traffic

information, or collecting tolls. In particular, the FTPS,

or equivalent system, will provide connectivity with

state roadside inspection facilities to coordinate the

application of screening criteria and communicate

border crossing information concerning each truck

including crossing location, time of crossing, red/green

screening results, and recommended actions. The

figure below illustrates the projected interconnectivity

among federal, state, and other systems.

Vehicle identification and information exchange

systems were installed and tested at seven border sites:

• Northern Border:

– Peace Bridge (Buffalo, NY)

– Ambassador Bridge (Detroit, MI)

– Blaine, WA (not part of IBC program)

• Southern Border

– Otay Mesa, CA

– Nogales, AZ

– El Paso, TX (limited testing)

– Laredo, TX (two locations)

• Technical feasibility of the ITS border

crossing systems has been demonstrated.

– The systems are able to support

information management and

exchange with U.S. Customs North

American Trade Automation

Prototype (NATAP).

– The systems are able to interface with

customs processing systems at the

border crossing sites.

• Connectivity of FTPS, or its equivalent, to

state enforcement systems will be

demonstrated in Laredo, TX and Detroit,

MI in FY 2000-2001.

• Tri-lateral coordination among U.S.,

Canadian, and Mexican officials and

industry continues through the

International Border Clearance Planning

and Deployment Committee (IBCPDC),

chaired by FHWA.

Legend:

CDLIS - Commercial Drivers License Information System

MCMIS - Motor Carrier Management Information System

SAFER - Safety and Fitness Electronic Records

IRP - International Registration Plan

IFTA - International Fuel Tax Assessment

5

* Freight and Trade Processing System (FTPS)

or an equivalent system

*
6

Detroit, MI

Blaine, WA*

• Busiest international border

crossing in North America

• 1.5 million import truck

movements in 1998

• 27% of the annual trade volume

between Canada and the U.S.

• Truck traffic increased 50%

between 1993 and 1997

Not including the border between Alaska and Canada, the

northern U.S. border with Canada extends approximately

3,987 miles, and includes 76 land border crossings that

handle commercial vehicle traffic, with the westernmost at

Blaine, WA along the Pacific coast, and the easternmost at

Calais, ME near the Atlantic coast. The Alaska/Canada

land border, which is approximately 800 miles in length,

has four commercial vehicle border crossings. Trade with

Canada is divided between traditional trade—

manufactured goods, raw materials and agriculture

products—and the automotive manufacturing trade—

products assembled in Canadian factories from parts

originating in the US or overseas.

• Seventh busiest international

port in the U.S.

• 559,046 truck crossings in

1998

• Land-based border crossing

* Not yet part of IBC program
7

Buffalo, NY

Commercial vehicles moving goods into the US across

the border with Canada are permitted to operate

throughout the U.S. A significant portion of these

vehicles support the automotive manufacturing industry,

in which auto parts and assembled vehicles are

transported short distances between manufacturing

facilities on opposite sides of the border. The remaining

vehicles transport a wide variety of consumer goods and

raw materials between the countries.

Trade volume impacts resulting from full implementation

of the North American Free Trade Agreement (NAFTA)

provisions are expected to be significant, but relatively

small in comparison with those expected along the

southern border.

• Commercial trucking is the

dominant mode of shipment

across the U.S./Canada border,

accounting for between 62%

and nearly 100% of all imports

through the 10 busiest ports

• Crossings into Michigan and

New York account for more

than 66% of all import movements from Canada

• Detroit is the busiest of all border land ports, with 15% of all

import movements into the

U.S., and 25% of all imports

from Canada

• Restrictions regarding differences in size and weight laws

aside, Canadian trucks are

treated the same as domestic

trucks while operating in the US

• Canada has consistently been

the biggest trading partner of

the U.S., and trends indicate

continued growth

• Second busiest northern

border land port

• 1.1 million import truck

crossings in 1998

• Trade volume has increased

15% since 1990
8

Items of Interest:

Located along the US border with Canada between the port cities of

Seattle, Washington and Vancouver, British Columbia, the border

crossing facility at Blaine is one of 11 ports between the state of

Washington and Canada. The majority of the traffic through the

crossing consists of commercial trucks, which are precluded from

using U.S. Interstate 5, and must exit the interstate and travel a

combination of limited-access highway and signalized surface streets

to get to and from the facility. Commodities processed through the

port consist largely of wood and paper products, and consumer

goods—a fair portion of them moving in containers from the Port of

Seattle.

Currently, there are no US commercial weigh and inspection facilities

at or near the crossing. The nearest Washington State facility is

located 40 miles south of the border. The U.S. Customs facility has

been undergoing major facility improvement, and will house

enhanced and enlarged secondary inspection facilities. The resulting

layout of the compound is expected to significantly ease the flow of

traffic southbound through the port.

• Regional growth is driving an increase in truck traffic.

• Inconsistent size and weight laws between the U.S. and Canada continue to present a significant challenge

to carriers.

– Differences among U.S. states also present challenges.

– Safety inspectors do not differentiate between U.S. and Canadian trucks.

• It is anticipated that Washington State will employ a third party for commercial vehicle information management and exchange.

– Similar to British Columbia, where a contractor provides this service

• Stakeholders share a strong sense of institutional unity.

– Within Washington State, Oregon, and Canada

– Early and regular coordination has facilitated mutually beneficial informal and formal agreements. (A

formal memorandum of understanding between Oregon, Washington, and British Columbia has been

authorized.)

• Phased funding makes full implementation of electronic data transfer with Canada difficult.

• There is a lack of understanding state-wide regarding the application of ITS in place of traditional transportation methods.

• Washington State Department of Transportation (WSDOT) officials are concerned about DSRC

interoperability, both within the U.S. and across North America.

– Uncertainty exists regarding the long-term implications associated with deciding which technology to

implement (e.g., long-term viability, operations and maintenance investment, technology life-cycle).
9

Progress:

• WSDOT participates in the Multi-Jurisdictional Automated Pre-clearance and

Safety Program (MAPS).

• Washington, in cooperation with Oregon, is a Commercial Vehicle Information

Systems and Networks (CVISN) Pilot State.

• Border modernization and infrastructure improvements are underway, with

incorporation of the IBC architecture expected in the future.

Plans:

• IBC program DSRC procurement to be initiated soon.

– Readers, antennae, supporting systems

• New customs compound, roadway, and truck parking lot are being built.

– New customs compound will have fiber optics as its communication backbone.

• There are plans to institute a program that allows subscribing truckers to pass through a

specially designated lane, speeding border processing.

• Statewide ITS/CVO implementation to be installed and operational in FY 2000-2001.

Lessons Learned:

• Competing CVO electronic screening cooperatives are preventing progress toward

international interoperability (e.g., PrePass, MAPS, Norpass).

• Planners should develop long-term, sequential deployment schedule that allows for

incremental funding and demonstration of capabilities.

• Non-traditional partnerships are not fully accomodated by the state planning process.

– Bi-national, multi-agency efforts expand the stakeholder body.

− State and Federal transportation and customs agencies have different roles and

different focus areas.

− Obtaining funding for and conducting coordination of property and infrastructure

improvements related to transportation in non-transportation compounds is complex.

− Limited knowledge regarding life-cycle, operations and maintenance costs of

technology implementations makes obtainment of funding commitments difficult.

− Traditional funding agreements are not universally applicable, requiring creativity and

flexibility, particularly with regard to multiple currencies and procurement laws.
Situated at the eastern end of an international trade route that

connects the northeast corridor of the U.S. with the industrial

northwest through Ontario, Canada, the Peace Bridge spans the

Niagra River between Buffalo, New York and Ft. Erie, Ontario. The

U.S. side of the bridge property is situated in a densely populated

area, bounded closely by a neighborhood on the east side, the

Niagra River to the west, and U.S. Interstate 90 and an historical

park to the south.

10

Items of Interest:

• Traffic congestion is a chronic problem resulting from restricted space and narrow roadway geometry leading to

and from the bridge.

• The weight-based fee calculation process allows for an equitable assessment of bridge tolls.

– Requires a longer period of time to process individual shipments

• State law prohibits random selection of trucks for inspection.

– Trucks are inspected in the order they arrive at the mobile site or if a specific safety violation is suspected.

– If trucks have a valid Commercial Vehicle Safety Alliance (CVSA) sticker, no inspection is performed.

– The New York State Department of Transportation (NYSDOT) would prefer to target ‘at risk’ carriers,

i.e., those with a record of infractions or pattern of delinquency.

• New crossing facility and adjacent roadway improvements are expected to reduce congestion.

• Bridge operators typically react negatively to commercial vehicle inspections being conducted on or near bridge

property.

• Federal, state, and local agencies combined to form the Niagara International Transportation Technology

Coalition (NITTEC).

– Primary objective is to reduce commercial vehicle crashes by increasing awareness of and compliance with

vehicle safety laws

The Peace Bridge is the third busiest crossing in the U.S. with regard to commercial

truck traffic, and is second busiest along the border with Canada. Truck traffic has

been rapidly increasing over the past 10 years. A 1992 study projected that traffic

would double by the year 2020—it is now expected to double by 2010. Revenue for

bridge operations and maintenance comes from user tolls, which are assessed to

commercial trucks based on weight.

Truck safety inspections are rarely done at the bridge due to congestion and safety

concerns. Statewide, 1%-2% of all trucks undergo a safety inspection in a given year.

There are no fixed weigh stations in operation in New York State, however, there are

a few inspection sites along Interstate 81, located approximately 150 miles from the

bridge. The New York State Police set up and operate temporary inspection sites

throughout the state to verify vehicle and driver safety and credentials compliance.
Progress:

• Peace Bridge is one of two northern border pilot sites demonstrating the IBC system

and the North American Automation Prototype.

• The bridge’s electronic toll collection system is interoperable with the IBC system

and the New York State Thruway toll system.

• A commercial vehicle processing center (CVPC) aimed at facilitating movement of

commercial vehicles has been constructed on the Canadian end of the bridge.

– Consolidates some commercial vehicle processing functions.

Plans:

• The Peace Bridge Authority plans to invest more than $200 million over the next 10 years in infrastructure

improvements.

– Addition of a second bridge span

– Plaza redevelopment

– CVPC preprocesses manifest and invoice detail and transmits information to U.S. brokers.

• TRANSCOM’S System for Managing Incidents and Traffic (TRANSMIT) will be extended to the Buffalo area.

– Will allow bridge traffic conditions to be more closely monitored for incidents.

• The high accident corridor program will focus commercial vehicle enforcement resources on high risk corridors.

11

 Peace Bridge International Border Crossing System

The evaluation performed for the Peace Bridge FOT revealed a number of significant lessons, including:

• Even if the equipment were to experience relatively high failure rates, the system installed at the bridge has

considerable potential to improve the level of service to both freight providers and people crossing the bridge

eastbound into the U.S.

– At a participation rate of 50%, simulation results indicate that freight bridge users could expect to see a 66%

decrease in average travel time across the border.

– Under these participation rates, commuters could expect to spend an average of 35% less time crossing the

bridge.

– Data suggests that equipping additional lanes with ITBCS technologies would further reduce delay.

• Westbound travelers can also expect savings, though on a smaller scale than those traveling east, since

Canadian import processing is generally less complex and time consuming.

• Users indicated that the requirement to continue to process through the border with existing processes running

in parallel to ITBCS was a likely disincentive to carrier participation in the FOT.

• Because expediting the flow of traffic is a goal not always consistent with the missions of agencies responsible

for regulating cross-border movements, seamless cross-border movement is not a universally shared priority.

• Issues:

– With no U.S. weigh scales on the Canadian side, trucks exceeding the bridge weight limit will cross

unimpeded.

– Increasing trade volumes, road access design issues and limited space combine to create significant

congestion at the Peace Bridge site.

FOT Lessons Learned
12

Items of Interest:

• Law enforcement officials do not differentiate between U.S. and Canadian trucks when selecting for

inspection.

• Michigan State Police Motor Carrier inspectors must comply with probable cause law when selecting

trucks for inspection—there must be visible evidence that suggests a potential violation exists.

• Michigan will soon undergo a $100 million improvement of freeways connecting to the Ambassador

Bridge.

– Significant commercial vehicle traffic delays are relatively rare and typically the result of limited

U.S. Customs staffing at the bridge.

• In preparation for the roadway improvements, Michigan State Police Motor Carrier Division is conducting

evaluations of actual and potential transponder market penetration, and the impact of traffic in order to

determine how best to address traffic volume.

• The successful deployment of federal systems on a privately owned bridge crossing was the result of an

effective public/private partnership that relied on extensive coordination of 11 stakeholder groups.

Spanning the Detroit River between Downtown Detroit and

Windsor, Ontario, the privately owned Ambassador Bridge

is a single span facility with two travel lanes in each

direction, and toll facilities to capture revenue. The bridge

is the single busiest international land border crossing in

North America, serving as a portal for 27% of the

approximately $400 billion in annual trade between Canada

and the U.S.

In 1997, 2.7 million trucks crossed the bridge, a 50% increase since 1993. This

volume is expected to double again by the year 2012. A substantial portion of this

trade supports the manufacture and distribution of automobiles. The Detroit

International Bridge Company, owners of the facility, plan to add an additional sixto-eight lane span, which is projected to be open for use by 2012.

The localized nature of the goods movement across the bridge—transferring parts

and completed autos a relatively short distance between the two cities—means that

commercial trucks hauling the goods rarely travel far enough into the state of

Michigan to encounter fixed weigh and inspection facilities. There are 19 such

stations in the state, each supporting all enforcement activities, supplemented by

mobile enforcement units in areas exhibiting higher frequencies of safety violations.

The inspection team is composed of approximately 120 officers with jurisdiction only

over the trucking community. The Michigan State Police Motor Carrier Division

conducts approximately 200 compliance reviews each year.
Plans:

• Planned second bridge span and highway improvements to facilitate travel

to and from the bridge are likely to have a significant impact on traffic flow.

• The Michigan State Police and the Michigan Department of Transportation

will demonstrate the FTPS at the Ambassador Bridge in FY 2000-2001 and

are actively involved in the CVISN Pilot State project.

Progress:

• One of two northern border test sites that demonstrated the IBC system and the North

American Trade Automation Prototype, and are now demonstrating FTPS.

• Technical feasibility of the IBC system was demonstrated during a field operational test.

– Actual usage was limited due to limited trade participation in NATAP.

– A Dedicated Commuter Lane was activated in 2000; more than 200 commuters

signed up for the program during its initial period of operation.

– Field operational test evaluation results were published in Spring 2000.

13

 Ambassador Bridge International Border Crossing System (ABBCS)

The evaluation performed for the ABBCS FOT revealed a number of significant lessons, including:

• Systems installed as part of the operational test proved the technical feasibility of expedited border crossings.

Specifically:

– DSRC is capable of supporting trade processing decision support systems such as NATAP.

– Provided that performance in adverse environmental conditions is improved, electronic card readers are capable

of performing basic commuter identification tasks.

• Implementation of a system such as ABBCS, in conjunction with a carefully selected lane assignment scheme, has

the potential to significantly reduce the length of vehicle queues on the bridge during peak traffic periods, reducing

the time necessary to transverse the compound by as much as 50%. Reconfiguration of the entry roadway into the

Customs compound from one lane to two would have an even more pronounced effect, allowing participating

vehicles unhindered access to equipped lanes.

• Simulation results indicate that the Dedicated Commuter Lane concept has the potential to positively impact traffic on

the bridge, provided all equipped lanes are open to all vehicles.

• Test events indicated that prolonged exposure to the vehicle identification readers resulted in dramatically reduced

transponder battery life, necessitating the replacement of current batteries with extended life units.

• Despite the limited scope of the test, and the small number of participants, user acceptance was relatively positive

regarding the ABBCS. Nonetheless, most users indicated that more tangible benefits would be required before

significant bridge user enrollment in such programs could be expected.

• Issues:

– Multiple agency points of contact for statewide CVO make it difficult to obtain uniform guidance from agencies

responsible for administration and enforcement.

– Legal requirements in Michigan do not yet allow the selection of high risk vehicles and drivers for inspection

using electronic records, which is counter to the ITS/CVO objective to target high-risk carriers.

– Space constraints prevent vehicle safety and compliance inspections from being conducted on the bridge facility

and support development and use of FTPS and CVISN.

FOT Lessons Learned
14

Otay Mesa, CA

Nogales, AZ

• Commercial trucking is the

dominant mode of shipment

across the U.S./Mexico border,

accounting for roughly 65% and

75% of the dollar value of all

imports and exports, respectively.

• Crossings into Texas through its

10 ports account for more than

68% of all import movements

from Mexico.

• Laredo is, by far, the busiest of the

southern border land ports, with

34% of all import movements.

• Maquiladora trade constitutes

approximately 50% of import

trade in Arizona and East Texas,

and more than 80% in California

and West Texas.

• Trade with Mexico has increased

dramatically since 1981, and

trends indicate continued

significant annual growth.

The southern U.S. border with Mexico

extends 1,945 miles, and includes 22

commercial vehicle land border

crossings, with the westernmost at Otay

Mesa, CA along the Pacific coast, and

the easternmost at Brownsville, TX

along the gulf coast. Trade with Mexico

is divided between traditional trade,

which is dominated by manufactured

goods and agriculture products, and

maquiladora trade—products

assembled in Mexican factories from

parts originating in the U.S. or overseas.

• 256,494 truck crossings in 1998

• Truck traffic increases at the rate of

10% per annum

• 11th busiest international port in the US

• Largest of six international border

crossings in Arizona

• More than 50% of all produce consumed in the US and Canada during

the winter months (valued at $1.4

billion) is imported through the

Nogales port-of-entry

• 599,000 import crossings in 1998

• Second busiest southern border port

– 22% of all southern border import

shipments

• Commercial traffic consists mainly of

drayage and private fleets servicing

maquiladoras located just south of the

border
15

Laredo, TX

• Busiest southwestern border port

– 1,340,563 truck crossings in 1998

– 50% traditional; 50% maquiladora

• Four Bridges

– Fourth bridge (for commercial

vehicles only) recently completed

Most commercial vehicles moving goods across the border with

Mexico are of Mexican origin. A significant portion of these

vehicles perform a drayage function, in which loaded trailers are

transferred from one side of the border to the other, over short

distances. This method, which is used extensively at crossings

into Texas, makes substantial use of older, cab-over tractors to

pull long-haul trailers. Much of the remainder of commercial

vehicles are Mexican-owned straight trucks hauling produce.

Current laws prevent U.S.-owned fleets from operating in

Mexico, and Mexican-owned fleets from operating outside what

have been designated as “commercial zones” in the U.S., which

extend from five to 25 miles from the point of crossing.

In contrast, maquiladora plants often rely upon private fleets to

carry parts and finished assemblies across the border. These fleets

typically carry dual registry (full operating authority in the U.S.

and Mexico), and as a result, can operate well into either country.

A number of changes are expected to eventually occur as NAFTA

provisions are implemented. Discussions are currently ongoing

between U.S. and Mexico on the implementation of NAFTA

provisions, but no specific agreements have been made.

Photo

El Paso, TX*

• 591,258 import crossings in

1998

• Third busiest southern port

– Second largest in Texas

• Gateway port for West

Texas and New Mexico

• Two commercial vehicle

import bridges

* Not part of the U.S. DOTfunded field operation test

program
16

Items of Interest:

• Multiple crossings and complex road network around laredo make fixed weigh and inspection

stations easy to avoid.

– TxDPS considers mobile enforcement (i.e., portable scales at impromptu roadside locations)

more effective.

– Mobile enforcement offers an excellent opportunity to employ ITS to leverage enforcement

resources.

• New crossing facility and adjacent roadway improvements are expected to speed traffic flow and

reduce congestion.

– Current traffic backups extend up to five miles during peak traffic periods (morning and

evening rush).

– Delay could also be reduced with implementation of DSRC technology to trigger Customs,

Immigration and Transportation Safety information to the Customs Inspector.

• TxDPS relies upon the experience and discretion of its officers to select vehicles for inspection and

weight checks.

– The CVISN/Safer system containing Mexican driver and vehicle history could help identify highrisk carriers.

The busiest port along the southern U.S. border with Mexico,

Laredo, TX is home to four bridges, each spanning the Rio

Grande River between Laredo and two Mexican states—Nuevo

Leon and Tamaulipas. Two bridges are located less than a mile

apart in a very busy downtown location. The Columbia-Solidarity

Bridge, a modern facility, is located north of the city. The fourth,

and newest bridge connects the port directly to U.S. Interstate 35

via an equally new four-lane divided concrete surface roadway

and is designated exclusively for commercial truck traffic.

More than 68% of all import truck movements from Mexico pass through

Laredo. Of the more than 1.3 million crossings completed annually,

approximately half support maquiladora manufacturing, while the other half

supports traditional trade. Manufactured goods constitute approximately 50%

of imports, and 75% of exports. Traffic across the busiest of the Laredo

bridges—Bridge 2—routinely backs up as much as five miles during morning

and evening rush.

The state of Texas has no fixed weigh and inspection stations in or near Laredo,

and very few throughout the state. The overwhelming majority of vehicle

checks are performed at temporary roadside sites set up by the Texas

Department of Public Safety (TxDPS). Plans to include a fixed facility at the

new bridge remain uncertain.
17

Plans:

• Plans to install fixed weigh and inspection facilities at Bridge 4 are uncertain

due to limited resources.

• The IBC program demonstrating FTPS links to the Safety and Fitness

Electronic Record (SAFER) data mailbox and state roadside facilities is

scheduled to begin in FY 2000-2001.

• TxDOT recently began development of an ITS/CVO Business Plan, signaling

an interest in using ITS technology.

• TxDOT has appointed an official responsible for international trade facilitation.

Lessons Learned:

• Limited resources are available to TxDPS for facilities, technology implementation, and staffing.

– Traditional approach likely to result in continued travel delays

• Laredo has multiple high-volume crossings, which demand innovative technological solutions.

• Space constraints and traffic volume severely restrict ability to perform safety inspections within the

U.S. Customs compound.

• Complexity of road network outside the immediate vicinity of crossings not conducive to use of fixed weigh

and inspection facilities.

• Laws permit the application of discretion in selecting vehicles for inspection.

• Large trade volumes and limited enforcement resources make Laredo well-suited for FTPS and ITS/CVO

technology implementations.

• Technology can help improve border operations at Laredo crossings, but the largest improvements will come

with replacing the drayage system that has been institutionalized between the U.S. and Mexico distribution

centers.

– Carriers drop off containers and trailers at distribution centers, and they are drayed across the border,

adding three to five days to the move.

Progress:

• IBC equipment installed and operational:

– Bridge 2—southbound

– Columbia-Solidarity Bridge—northbound and southbound

• The Texas Department of Transportation (TxDOT) and TxDPS have agreed to

support system testing and evaluation.

• TxDOT has assisted TxDPS in the installation of a roadside inspection site

that will use information transmitted from the FTPS for vehicle screening.
18

Items of Interest:

• U.S. and Mexican agencies are working together at the Nogales crossing to improve relationships and forward a

common agenda of enhancing safety and facilitating trade.

– U.S. Customs and the Arizona Department of Transportation’s (ADOT) Motor Vehicle Division (MVD) have

been working together toward the goal of having 60% of trucks processed in queue at the Superbooth.

- The Superbooth is staffed by both Customs and ADOT, and it is intended to expedite truck movement

of line release participants into the U.S.

– The ADOT MVD has been invited by Mexico to set up a satellite office to pre-process Mexican trucks before

they reach the U.S. border.

– The Arizona Department of Public Safety (ADPS) has trained representatives from other agencies to

conduct truck inspections.

- In 1998, 45,000 commercial vehicle inspections were conducted in Arizona:

· ADPS conducted 67%

· 70 other agencies conducted remaining 33%

- ADPS has trained Mexican motor carrier inspectors since 1995; however Mexico has not passed the

necessary laws to support enforcement.

· ADPS taught Commercial Vehicle Safety Alliance standards and Out Of Service (OOS) standards

to 80 inspectors at over 10 different Mexican sites.

· Delays in the full implementation of NAFTA have caused interest in cross border training to wane.

• A combination of random and discretionary selection practices are employed to select vehicles for inspection.

– Inspection Selection System (ISS) is used for identifying what type of inspection is to be done once the

vehicle has already been selected.

• The enforcement of federal commercial zone restrictions is not a priority for Arizona officials.

– The extent to which restrictions are violated is not well understood.

Arizona’s main commercial truck crossing, which processes all

international commercial traffic entering the state, is located approximately three miles west of central Nogales, at Mariposa. The

Nogales port, which connects the U.S. with the Mexican state of

Sonora, is the largest inland port for fruits and vegetables in the

U.S.—more than 50% of all produce consumed by the U.S. and

Canada during the winter months is imported here. Due to the

nature of the trade traffic, most of the commercial truck volume

across the border is concentrated during the winter months.

There is one fixed weigh and inspection station located in Nogales,

which is supplemented by inspectors equipped with mobile

inspection devices. This equipment includes wheel weighers, roll-up

mat scales, and a Special Response Interactive (SPRINT) port used at six

Mexican border ports. In addition, 10 sets of portable scales are carried in the

trunks of patrol vehicles, three sets of platform scales are used on details, and

three sets of slow speed, weigh-in-motion screening devices are used by detail

strike forces to screen for weight at observation points.
19

Progress:

• Nogales used IBC system and Management Information System for Transportation (MISTTM),

along with variable message signs (VMS), closed-circuit television (CCTV) cameras, and weighin-motion (WIM) scales to facilitate commercial vehicle movement through the port.

• Two slow-speed WIM (SWIM) scales are installed on the approach to the U.S. Customs primary

inspection site.

Plans:

• A port efficiency study is being conducted at the Douglas Port to determine if there is a need for

any infrastructure improvements.

• Arizona has undertaken preliminary planning to deploy ITS/CVO throughout the state.

• Arizona and U.S. Customs are developing a joint state-Federal port to better coordinate border

operations.

• Coordination between state and Federal authorities through shared facilities continues.

Both are involved in planning the reconfiguration of the Douglas Port.

 Expedited Processing at International Crossings (EPIC)

The evaluation performed for the EPIC FOT revealed a number of significant lessons, including:

• By eliminating the need for commercial vehicle operators to stop at the Arizona DOT office within the compound to

verify trip permits, the EPIC system has the potential to significantly reduce the amount of time spent in the border

compound.

– The EPIC system allowed for electronic verification of trip permits.

– Average time saved could be expected to be between 8.8 and 12.9 minutes.

• The pre-clearance of vehicles to use the Superbooth, and avoid entering the compound altogether, reduced the

average approximate travel time through the compound by over 80% (25 minutes).

• The participating carriers registered in Arizona expected limited benefits to accrue from the use of the EPIC

technologies, since they had no need to stop in the ADOT office to verify trip permits. They did, however, expect

to benefit from the availability of traffic congestion information.

• ADOT representatives estimated that, due to the pre-processing functions within the EPIC system, they would

save approximately two minutes for every trip permit from which they did not have to perform data entry.

• Issues:

– There is no hazardous materials containment area (safe haven area) at any of the existing Arizona ports.

- One site planned

– Insufficient financial resources preclude the operation of fixed weigh stations at all ports.

- Non-interstate ports are often used to by-pass weigh and inspection facilities—weight violations cannot

be detected before a vehicle enters the U.S.

- Will utilize SPRINT ports at more remote sites to verify weight and safety compliance

– State representatives support technological innovation to facilitate faster processing and

enhance safety. Some areas for focused attention include:

- Vehicle identification

- Vehicle status

· Systems

· Credentials

· Operating condition

FOT Lessons Learned
20

Items of Interest:

• California Highway Patrol’s operations are becoming more responsive to commercial vehicle safety issues.

– California Highway Patrol personnel outside of the border division are now being trained in commercial

vehicle inspection.

• Caltrans’ capital improvements to the roadways around Otay Mesa are expected to ease traffic flow and

reduce congestion for both commercial and non-commercial traffic.

– Widening roads to and from Otay Mesa from four lanes to six

– Converting Route 905 from Otay Mesa to a route with reversible lanes

– Enclosing roadway leading from the Customs facility to the inspection facility with fencing

• California Highway Patrol has continuously upgraded its inspection efforts at the border.

– Checking driver hours of service more regularly

– Conducting more level three inspections (driver and vehicle registration)

– Established a goal of inspecting every truck crossing the border a minimum of every 90 days

• Trucks are selected for inspection based on notable violations, expired CVSA stickers, and random selection.

– Inspectors do not differentiate between U.S. trucks and Mexican trucks in determining which trucks to

inspect.

– Inspectors utilize the Federal Motor Carrier Safety Administration (FMCSA) SAFER system to identify outof-service violations.

The westernmost border crossing between the U.S. and Mexico,

Otay Mesa connects California to the Mexican town of Tijuana, in

the state of Baja California. Otay Mesa is the fifth busiest port in

the country, and the second busiest on the southern border. The

majority of truck traffic through the port, situated on the southern

end of the U.S. Interstate 5 corridor, consists of private fleets and

dray operations supporting the maquiladora manufacturing

complexes in Tijuana.

The state of California has full service weigh and inspection

facilities at each of its two commercial vehicle border crossings with

Mexico. At Otay Mesa, the California Highway Patrol (CHP) has

recently completed construction of a new safety inspection facility

located just north of the U.S. Customs facility exit into California.

All trucks entering the U.S. at the port must pass through the

facility before entering the U.S. The facility is equipped with WIM

scales, inspection bays, and a high capacity vehicle inspection area.

Twenty-nine (29) CHP inspectors are assigned to Otay Mesa, the

most of any southern port. These inspectors are tasked with

inspecting every truck that passes through the facility once every

90 days.
21

Progress:

• Technical feasibility of the IBC system was demonstrated, including the North

American Automation Prototype.

• The field operational test evaluation final report was published July 1998.

• Since the completion of NATAP, Automated Customs Systems (ACS) have been

re-employed until production processing system is completed.

Plans:

• The roadway geometry will be reconfigured so that trucks will pass through both a

CHP weigh station and inspection facilities before entering the U.S.

• CHP will be installing the Heavy Vehicle Electronic License Plate (HELP) Pre-Pass

system at the inspection facility for passing safe and legal carriers electronically.

• Testing of the FTPS in conjunction with CHP is scheduled to begin in

FY 2000-2001.

 International Border Electronic Crossing (IBEX)

The evaluation performed for the IBEX FOT revealed a number of significant lessons, including:

• The layout of an international border compound, and the operations within it, present a challenge in

implementing current DSRC systems in a border environment.

– The large number of trucks operating in close proximity, in a compound configured such that

looping sometimes becomes necessary, place a premium on antennae and reader placement.

Antennae footprints must be carefully tuned to avoid extraneous and missed reads.

• Test results indicate that an RF (radio frequency) network is capable of supporting basic information

exchange requirements, although it is unclear whether higher transaction volumes could be sustained.

• Participating carriers indicated they saw potential for IBEX technologies to enhance operations, but

that improvements to surrounding processes would be necessary.

– The initial investment associated with equipping vehicles with transponders was considered

acceptable, provided that processing paper-based transactions in parallel was eliminated.

– Participants believed that as congestion at the border increases, participation in automated preclearance programs will make the difference in the efficiency and competitiveness of their

operations.

FOT Lessons Learned
22

Non-traditional relationships among border stakeholders has resulted in some uncertainty regarding

effective methods for cofunding bi-national

technology initiatives. For example, no method is in

place for maintaining sensor systems like DSRC in a

uniform manner in both nations.

At each of the border crossings investigated,

planned and actual capital improvements of U.S.

Custom compounds involved expansion of inspection

areas, redesign of roadways to and from the border,

and implementation of new technologies, yet plans

for weigh and inspection facilities remain

conspicuously absent in most locations.

Representatives at each site indicated expectations

that the North American Free Trade Agreement

(NAFTA) would result in significant increases in traffic

at international border crossings.

At those ports where IBC systems have been installed

and tested, evaluation results have validated the

technical feasibility of ITS to support federal, state and

local trade and transportation processes.

Departments of public safety responsible for many of

the six sites have made significant strides to increase

their enforcement presence and apply ITS technology

to aid inspection selection processes, but targeted

inspections are illegal in some states.

State officials along the Canadian border indicated

their primary concerns regarding commercial vehicle

safety were weight and driver hours of service, while

officials from states along the border with Mexico

were most often concerned with vehicle equipment.

Differences in geography, topography, and road

networks, combined with differences in cross-border

goods movement business models and crossing

volumes at ports along the southern border,

significantly influence the safety enforcement

methods employed by state officials.

As with many domestic ITS/CVO initiatives,

institutional issues represent the most significant

hurdle in deploying and using technology as a tool

for improving processes at international borders.

Customs compound facility improvements play a

major role in addressing the concern of excessive

delay in processing through the border, but a

combination of resource constraints and space

limitations in many cases precludes the construction

of fixed safety inspection facilities.

Little is known or understood regarding how crossborder goods movement business models will evolv

once the full provisions of NAFTA go into effect, but

the combination of increasing volume and

diminishing levels of enforcement personnel is likely

to result in continued delays.

Significant progress has been made in applying ITS 

international borders, but existing facility

configurations limit the applicability of a uniform

border system design/architecture.

The combination of more, better-trained inspectors

and a strong focus on the development and

employment of more efficient, effective inspection

selection practices offers significant promise for

ensuring the safety of non-U.S. trucks.

Differences between northern and southern border

operations business models—primarily the result of

drayage practices and vehicle inspection practices in

Mexico and Canada—drive enforcement priorities

and practices in the U.S. border states.

The application of a single solution for trade

facilitation and safety assurance, in the form of fixed

weigh and inspection facilities, along the southern

border may be impractical.

Lessons Learned
23

Photo

The local and international alliances formed in order to

improve commercial vehicle movement at the border

will continue to drive the level of success of IBC

initiatives.

Alternatives to fixed safety inspection facilities, including

the application of ITS technologies, and the

development of joint compounds in one of the

countries, must continue to be explored to ensure that

safe trucks entering the U.S. are not delayed.

Further understanding regarding the future of such

localized business phenomena as drayage and storage

yards on the southern border must be developed if

states are to effectively allocate resources along trade

corridors.

A continued focus on the refinement of technology, and

the opportunities to demonstrate connectivity and

interoperability with other federal and state systems will

allow agencies to more effectively leverage IBC systems,

and facilitate success at our international borders.

Since one of the primary benefits of ITS is its usefulness

in leveraging technology to focus enforcement, realizing

its full value may require laws precluding selective

inspections be amended or changed.

The deployment of IBC systems and technologies offers

state officials along each border the ability to utilize

available information to increase productivity and better

manage their resources, and pre-clearance allows time

to correct defficiencies before the truck actually arrives at

the crossing.

ITS technologies have the potential to significantly

improve operations in states where the construction of

fixed weigh and inspection sites at each international

border crossing is prohibitively expensive by allowing

clearance of carriers that have a proven track record of

safety and compliance.

Opportunities
Federal Highway Administration (FHWA) Resource Centers

Federal Transit Administration (FTA) Regional Offices

For further information, contact:

Eastern Resource Center

10 S. Howard Street

Suite 4000 – HRC-EA

Baltimore, MD 21201

Telephone 410-962-0093

Southern Resource Center

61 Forsyth Street, SW

Suite 17T26 – HRC-SO

Atlanta, GA 30303-3104

Telephone 404-562-3570

Midwestern Resource Center

19900 Governors Highway

Suite 301 – HRC-MW

Olympia Fields, IL 60461-1021

Telephone 708-283-3510

Western Resource Center

201 Mission Street

Suite 2100 – HRC-WE

San Francisco, CA 94105

Telephone 415-744-3102

Region 1

Kendall Square

55 Broadway, Suite 920

Cambridge, MA 02142-1093

Telephone 617-494-2055

Region 2

Alexander Hamilton Federal Building

1 Bowling Green, Room 429

New York, NY 10004

Telephone 212-668-2170

Region 3

1760 Market Street, Suite 500

Philadelphia, PA 19103-4124

Telephone 215-656-7100

Region 4

Atlanta Federal Center

61 Forsyth Street, SW, Suite 17T50

Atlanta, GA 30303-3104

Telephone 404-562-3500

Region 5

200 West Adams Street, Suite 2410

Chicago, IL 60606-5232

Telephone 312-353-2789

Region 6

819 Taylor Street

Room 8A36

Fort Worth, TX 76102

Telephone 817-978-0550

Region 7

901 Locust Street, Suite 40

Kansas City, MO 64106

Telephone 816-329-3920

Region 8

Columbine Place

216 16th Street, Suite 650

Denver, CO 80202-5120

Telephone 303-844-3242

Region 9

201 Mission Street, Suite 2210

San Francisco, CA 94105-1831

Telephone 415-744-3133

Region 10

Jackson Federal Building

915 Second Avenue, Suite 3142

Seattle, WA 98174-1002

Telephone 206-220-7954

FHWA/FTA Metropolitan Offices

New York Metropolitan Office Chicago Metropolitan Office

1 Bowling Green, Room 429 200 West Adams Street, Suite 2410

New York, NY 10004-1415 Chicago, IL 60606-5232

Telephone 212-668-2201 Telephone 312-886-1616

Philadelphia Metropolitan Office Los Angeles Metropolitan Office

1760 Market Street, Suite 510 201 North Figueroa, Suite 1460

Philadelphia, PA 19103-4124 Los Angeles, CA 90012

Telephone 215-656-7070 Telephone 213-202-3950
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