PRIMER FOR IMPROVED 

URBAN FREIGHT MOBILITY 

AND DELIVERY

Operations, Logistics, and Technology Strategies
Notice 

This document is disseminated under the sponsorship of the U.S. Department of Transportation in 

the interest of information exchange. The U.S. Government assumes no liability for the use of the 

information contained in this document. This report does not constitute a standard, specification, or 

regulation. 

The U.S. Government does not endorse products or manufacturers. Trademarks or manufacturers’ 

names may appear in this report only because they are considered essential to the objective of the 

document. 

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The Federal Highway Administration (FHWA) provides high-quality information to serve government, 

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 New York City streetscape. Source: Alison Conway, City University of New York. 
Technical Report Documentation Page
Foreword 

The economic prosperity and competitiveness of America’s cities depends on the reliable and 

efficient movement of freight through our multimodal freight system. In recent decades, population 

growth and economic growth in the United States has been concentrated in urban areas, where, 

according to the U.S. Census, approximately four of five Americans live. This growth, combined with 

increasing deliveries resulting from the steady rise in e-commerce, is driving increased demand for 

freight movement in urban areas. 

Rising demand for urban freight movement requires innovative, collaborative approaches to 

accommodate growth while addressing the increased congestion, pollution, and wear and tear on 

infrastructure that can be caused by increased freight traffic. Cities must also find ways to manage 

competition for limited curb space and improve the safety of vulnerable road users who share the 

roads with larger delivery vehicles. 

This primer is intended to stimulate collaboration and innovation while serving as a practical 

resource for both public- and private-sector freight stakeholders seeking to improve freight 

mobility in urban areas. It identifies 17 noteworthy practices representing operations, logistics, 

and technology (OLT) strategies and describes how they were successfully implemented. Each 

noteworthy practice briefly outlines the resources used to implement the practice, the stakeholders 

involved, and the results. Contact information is provided for readers interested in learning more. 

Freight practitioners in public agencies may wish to use this primer to identify and plan for freight 

projects and strategies that would be eligible for the National Highway Freight Program (NHFP) or 

other Federal funding for freight projects. The final section describes opportunities for integrating 

freight mobility strategies into the transportation planning process and lists some Federal programs 

through which freight projects and strategies may be funded. 
Table of Contents 

1. Introduction.............................................................................................................1

Purpose.............................................................................................................................1

Structure...........................................................................................................................2

Background ......................................................................................................................2 

Benefits of Urban Freight Management........................................................................3

Noteworthy Practice Success Factors............................................................................7

2. Operations Strategies and Noteworthy Practices............................................11 

Loading Zone Designation............................................................................................13

Loading Zone Permitting...............................................................................................15

Loading Zone Enforcement...........................................................................................17

Traffic Control.................................................................................................................19

Infrastructure Improvement.........................................................................................21

3. Logistics Strategies and Noteworthy Practices.................................................23 

Off-Hour Delivery............................................................................................................25

Reservation Systems for Pick-up and Delivery Locations..........................................27

Modal Shifts....................................................................................................................29

Freight Consolidation.....................................................................................................31

4. Technology Strategies and Noteworthy Practices............................................33 

Real-Time Truck Parking Availability............................................................................35

Overheight Detection and Alerts..................................................................................37

Weigh-in-Motion Sites for Enforcement and Data Collection...................................39

Emissions Reduction Strategies....................................................................................41

Clean Truck Programs - Ports.......................................................................................43

Vehicle Environmental Performance............................................................................45

Electric Vehicles..............................................................................................................47

Truck Design....................................................................................................................49

5. Planning and Funding Operations, Logistics, and

 Technology Strategies........................................................................................51

Planning for Freight Projects........................................................................................52

III 
Federal Funding Opportunities for Freight.................................................................55

List of Figures 

Figure 1. OLT Strategy Roadmap..................................................................................10

Figure 2. Integrating Freight into the Transportation Planning Process.................51 

List of Tables 

Table 1. Target Primer Audience....................................................................................2

Table 2. Urban Freight Success Factors and Primary Benefits...................................9

Table 3. Freight Opportunities in the Transportation Planning Processes.............53

Table 4. Federal Funding Sources for Freight Projects..............................................56

IV 
1. Introduction

Purpose 

According to the U.S. Census, more than 

80 percent of people in America live in 

metropolitan areas. Urban populations are 

likely to grow by 20 percent or more over the 

next 20 years as the country’s overall population 

increases and the movement of people 

into urbanized areas continues. As urban 

populations increase and demand for goods 

rises, moving freight safely, efficiently, and 

reliably becomes increasingly challenging. To 

meet this challenge, public- and private-sector 

freight practitioners are finding ways to work 

together to plan for and implement solutions 

that improve the cost-effectiveness of freight 

movement in urban areas while balancing the 

needs of other road users, local businesses, and 

residents. 

This primer is designed to serve as a resource 

for freight stakeholders seeking to improve 

goods movement in their regions. For the 

purposes of this document, urban freight 

management refers to planning, programming, 

and other strategies to improve freight mobility 

in urban areas or to minimize its impacts on 

others. Operations, logistics, and technology 

(OLT) strategies represent a set of practices that 

can be applied to improve the movement of 

goods and the quality of life of urban residents. 

This primer can help freight stakeholders 

understand potential applications of 

OLT strategies to improve urban freight 

management and mobility through the 

sharing of noteworthy practices that have 

been implemented successfully. It may also 

assist freight stakeholders in identifying 

freight projects that are eligible for funding 

through Federal freight programs such as the 

National Highway Freight Program (NHFP) 

and the Nationally Significant Freight and 

Highway Projects (NSFHP) program, currently 

being administered as the Infrastructure for 

Rebuilding America (INFRA) grants. 

Operations, logistics, and technology strategies 

are defined here as follows:

• Operations strategies focus on loading

zones, parking, truck routing, and other

elements of traffic control and lane

management.

• Logistics strategies focus on individual

supply chains to consider adjustments

such as off-peak delivery hours, freight

consolidation, or mode shifts.

• Technology strategies incorporate

intelligent transportation systems (ITS),

alternative fuels, and other technological

advancements with the potential to improve

urban freight movements.

The target audience for this primer are the 

freight transportation stakeholders who can 

influence and enact change to improve urban 

freight mobility in both the public and private 

sectors. These stakeholders include, but are not 

limited to, those listed in Table 1 on the next 

page. 

1 
Downtown Los Angeles, CA. Source: Getty Images. 

Structure 

This primer is part of a set of projects 

sponsored by the Federal Highway 

Administration (FHWA) under the umbrella 

of Innovative Solutions for Improving Freight 

Movements in Urban Areas. This initiative seeks 

to:

• Define the benefits of improved freight

transport in urban areas.

• Identify tools and strategies for practitioners

to improve urban freight mobility.

• Highlight noteworthy practices so that

practitioners can benefit from lessons

learned in the field.

This primer focuses on OLT strategies that 

agencies are employing to improve urban 

freight mobility. This primer is organized in 

five chapters. The next three chapters of this 

primer focuses on operations, logistics, and 

technology strategies, respectively. Each of 

these chapters features a series of noteworthy 

practices with key OLT strategy details, as well 

as an example of how the strategy has been 

successfully implemented in the field. The final 

chapter identifies opportunities to plan for and 

fund the implementation of OLT strategies. A 

complementary primer to be published in the 

future will focus on stakeholder engagement, 

public outreach, and partnership strategies. 

Background 

Commercial trucks are the dominant mode of 

transportation for urban freight. They represent 

approximately 8 percent of vehicle travel in 

metropolitan areas. This percentage is likely 

to increase with the rise of e-commerce and 

increased globalization of trade. E-commerce 

Table 1. Target Primer Audience 

Target Stakeholders Role in Freight and Goods Movement in Urban Areas 

Public-sector planners and engineers Plan and implement OLT strategies to manage urban freight in a city, 

State, or region. 

Regulators, elected officials, and Advocate for and enact policy changes pertaining to urban freight 

advocacy and community groups transportation for a city, State, or region. 

Shippers, receivers, freight carriers, Move freight and coordinate pick-ups and deliveries. 

and logistics professionals 

Industry/business associations and Represent business interests of an industry, sector, city, or region. 

economic development organizations 

Researchers and academics Lead research efforts to develop solutions to urban freight challenges.

2 
What are Urban Areas? 

For the purposes of this primer, “urban 

areas” include cities and suburbs with 

a developed, and often multimodal, 

transportation network. This definition 

includes major metropolitan areas 

containing an extensive multimodal 

transportation network, medium-sized 

cities with pockets of population and 

employment activity centers, as well as 

smaller cities with vibrant main streets. 

Although cities may vary significantly in 

their urban form, they all face similar 

challenges when it comes to the efficient 

flow of goods.

is increasing demand for freight deliveries to 

urban residents, while growing international 

trade is increasing traffic at ports of entry, many 

of which are located in metropolitan areas. 

Effective urban freight systems facilitate goods 

movement, reducing costs for businesses 

and improving services for consumers while 

minimizing unwanted impacts on infrastructure, 

safety, and the environment. Because freight 

is typically moved by private-sector entities on 

infrastructures built and maintained by an array 

of public and private stakeholders, effective 

freight mobility strategies usually involve both 

public and private stakeholders in planning and 

implementation. In coordination with privatesector partners, State and local transportation 

agencies can implement strategies to facilitate 

the movement of freight in metropolitan areas 

and reduce its impacts on residents and other 

travelers. Although coordinating with diverse 

stakeholders across jurisdictions, authorities, 

and sectors can be challenging, many agencies 

have found ways to engage successfully with 

stakeholders to enhance freight mobility while 

addressing impacts on other road users and 

residents. 

Benefits of Urban Freight 

Management 

The benefits of urban freight management 

for cities and local residents and businesses 

include reduced infrastructure maintenance 

costs, improved mobility and traffic flow, 

enhanced information flow that can inform 

better decisions, reduced traffic incidents, 

more efficient deliveries, and reduced noise 

and air pollution. Freight carriers and shippers 

benefit from increased reliability of pick-ups and 

deliveries, more seamless truck parking, and 

new freight delivery technologies. 

Infrastructure Preservation 

The physical constraints of the urban 

environment, particularly in older cities, can 

make it difficult or impossible for larger freight 

delivery vehicles to use certain routes or 

access certain neighborhoods. These physical 

constraints include low overhead clearances, 

restricted roadway geometry, and weightrestricted bridges. Metropolitan regions may 

designate truck routes and implement warning 

systems to help freight vehicle operators 

A tractor-trailer traveling an urban street. Source: Getty 

Images. 

3 
A line of construction vehicles waiting in city traffic. Source: Volpe National Transportation Systems Center.

better plan for and adjust their activities as 

needed. Increasingly, public agencies are using 

information and communications technologies 

to keep information on freight routes up-to-date, 

to provide better communication of information 

to carriers and providers of routing services, and 

to monitor and enforce carrier compliance with 

rules and restrictions. For example, the New York 

City DOT (NYCDOT) is using weigh-in-motion 

(WIM) technology to monitor truck activity 

on bridges and roadways on strategic freight 

corridors entering the city (see WIM Sensor 

Installation on page 39).

All vehicles, including trucks, have some impact 

on road conditions. Enforcement of truck size 

and weight limitations, as well as of city-specific 

access and route restrictions, can reduce 

infrastructure damage while also improving 

safety for all road users. For example, the City of 

New Orleans restricted delivery vehicles longer 

than 36 feet in length from accessing the French 

Quarter, one of the city’s oldest neighborhoods. 

The French Quarter’s historic homes and narrow 

roadways were at risk of damage from larger 

vehicles (see Ban on Large Trucks in French 

Quarter District, New Orleans, LA, on page 19).

Mobility/Traffic Flow

Trucks can increase roadway congestion in 

dense urban areas, particularly if receivers 

request deliveries during or near peak traffic 

times. Planning of local truck routes and 

access can reduce truck-related congestion. 

For example, Washington, DC, implemented a 

loading zone management program to reduce 

double parking. The effort improved mobility 

and traffic flow in the District’s commercial 

areas without a substantial disruption of 

commercial activity (see Commercial Loading 

Zone Management Program (CLZMP) in 

Washington, DC, on page 17). Similar planning 

efforts can improve delivery reliability and 

reduce instances of carriers missing delivery 

windows or making additional attempts to 

deliver a shipment. Improving mobility and 

traffic flow in urban environments can increase 

the reliability of freight deliveries, which 

benefits both the carriers and receivers of 

goods. 

Truck drivers making first- and last-mile freight 

movements in urban areas sometimes have 

difficulty finding available loading areas, both 

on-street and off-street. There can be intense 

4 
Downtown Glens Falls, NY. Source: Cambridge Systematics.

competition for the use of curb space in urban 

areas between loading zones and other uses, 

such as parking for light-duty vehicles, bus 

stops, fire hydrants, crosswalks, and bicycle 

lanes. Cities that provide an adequate supply 

or enforce proper use of loading zone spaces 

can improve traffic flow, shorten delivery times, 

and reduce double parking infractions. For 

example, the City of Miami Beach implemented 

a loading zone permitting system to reduce 

double parking. The effort helped reduce traffic 

congestion during peak hours as well as noise 

from freight loading activities during off-hours 

(see City of Miami Beach Freight/Alley Loading 

Parking Permit Program on page 15).

Safety 

Although urban roadways typically have 

lower speed limits than rural and suburban 

routes, these roadways also have higher traffic 

densities and a diverse mix of road users. As a 

result, trucks traveling on urban roadways can 

present more opportunities for conflicts with 

other road users. In 2015, more than 1,400 

people were killed in traffic crashes involving 

large trucks in urban areas. Approximately 

nine percent of all fatal crashes in urban areas 

involve a large truck. Maintaining lower speed 

limits and buffering trucks from other road 

users when possible can help prevent collisions. 

It is also important to consider how the design 

of trucks and other large delivery vehicles 

affects travel in urban areas. Trucks have higher 

ground clearances and mechanical limitations 

to maneuverability that can affect the way 

trucks interact with infrastructure and other 

road users in urban areas with mixed traffic. 

Improvements to truck designs can reduce 

safety risks to urban travelers. For example, 

reducing blind spots increases the ability for a 

truck operator to see all areas of the roadway, 

particularly in areas near the cab and the rear 

of the truck. (See Transport for London (TfL) 

Reducing Truck Blind Spots through Vehicle 

Redesigns on page 49.)

Inadequate truck stops and rest areas is also 

an issue in urban areas. Tired truck drivers may 

continue to drive because they have difficulty 

finding a safe or desirable place to park for rest. 

If they are unable to find safe parking, drivers 

may park in unsafe locations, such as on the 

shoulder of the road or along exit ramps, in 

order to comply with Federal hours-of-service 

5 
A truck being unloaded at an urban construction site. Source: 123rf.com.

(HOS) regulations. Trucks making urban 

deliveries prefer parking facilities near large 

metropolitan areas to time their deliveries 

or match gate times at ports, terminals, or 

distribution centers in the metropolitan area. By 

improving the capacity of loading and parking 

facilities and getting information about parking 

availability to carriers, agencies can help to 

reduce congestion and increase operational 

safety. For example, the Florida Department 

of Transportation (FDOT) is installing realtime truck parking sensors at interstate rest 

areas, welcome centers, and weigh stations to 

better communicate truck parking availability. 

The system will help truckers maximize their 

HOS requirements by reducing the time spent 

searching for safe, legal parking (see Truck 

Parking Availability System in Florida on page 

35).

Reduced Pollution 

Proper planning and regulation of urban freight 

movement can reduce noise and air pollution 

impacts on urban residents. Much of the 

environmental impact of freight transportation 

stems from emissions of air pollutants from 

freight vehicles. Newer diesel-powered freight 

vehicles are cleaner than older models due to 

more stringent regulations. However, these 

regulations do not address emissions from the 

millions of older vehicles and vessels still in 

operation. To reduce emissions from existing 

diesel-powered freight fleets, public agencies 

have developed different programs and policies 

to accelerate the retirement or repowering 

of vehicles and vessels. One such initiative is 

the Clean Trucks Program administered by 

the Ports of Los Angeles and Long Beach. The 

first of its kind, this program prohibits drayage 

trucks with older and more polluting engines 

6 
from accessing the ports. The program has 

been credited with reducing emissions from 

overall drayage operations by 80 percent (see 

Clean Trucks Program at Ports of Los Angeles 

and Long Beach on page 43).

Multiple levels of government also offer 

financial incentives for fleet owners to switch 

to alternative fuels such as electricity or natural 

gas. For example in Houston, Texas, the 

regional metropolitan planning organization 

(MPO) has partnered with United Parcel Service 

(UPS) using funding from the U.S. Department 

of Energy (DOE) to pilot the use of electric 

delivery vehicles to deliver packages in the 

region (see Demonstration of Zero-Emission 

Delivery Vehicles in the Houston-Galveston 

Area on page 47). Other public initiatives aim to 

encourage the use of lower-emitting transport 

modes or to reduce the unnecessary idling of 

freight vehicles, vessels, and cargo-handling 

equipment. 

Some communities have identified noise, or 

unwanted sound, as a concern associated 

with urban freight movement. Some truck 

manufacturers offer vehicle modifications 

that reduce noise, including idle-reduction 

equipment. Makers of cargo-handling 

equipment (e.g., rolling cages) have also begun 

to offer low-noise models. These improvements 

are especially important to the success of offhours delivery (OHD) programs, which aim to 

reduce daytime traffic congestion by shifting 

some freight activity to the overnight hours. 

Cities, such as Stockholm, Sweden, have found 

that well-managed OHD programs can help 

to address freight mobility issues without 

disturbing residents (see Off-Peak City Logistics 

Pilot in Stockholm, Sweden, on page 25).

Noteworthy Practice 

Success Factors

The noteworthy practices featured in Sections 

3, 4, and 5 highlight strategies geared towards 

improving urban freight mobility through OLT 

applications. Although each noteworthy practice 

presents distinct challenges and solutions, 

several common factors contributed to the 

success of the program or initiative. The primary 

success factors for OLT strategies include:

• Engage stakeholders. Stakeholder

engagement can be critical for

understanding local needs and implementing

appropriate solutions. The San Francisco

Municipal Transportation Agency (SFMTA)

actively manages loading zone designations,

holding monthly public hearings and rapidly

processing requests for new loading zones

or changes to existing loading zones. In New

Orleans, the French Quarter Management

District worked with the City Council

to pass legislation banning oversized

vehicles from accessing the historic French

Quarter neighborhood. The popularity

of the oversized vehicle ban among New

Orleans residents has led to additional

law enforcement hires through the French

Quarter Task Force. The Downtown DC

Business Improvement District worked

closely with the District DOT to implement

and evaluate a pilot parking program that led

to citywide changes in the management and

enforcement of loading zones. This approach

fostered partnerships with stakeholders to

communicate the intention of the changes to

loading zone rules and to achieve mutually

beneficial outcomes.

• Partner with the private sector. Given the

dominant role of the private sector in freight

transport, private-sector participation is vital

for successful implementation of new urban

7 
freight initiatives. Private-sector stakeholders 

can offer insights into freight challenges 

and potential solutions that are based on 

their “real world” experience operating in 

urban environments. In many noteworthy 

practices, program managers collaborated 

with private-sector freight stakeholders to 

ensure proper implementation. In the case 

of the Port Authority of New York and New 

Jersey, the agency worked with the private 

sector to develop appropriate commercial 

design guidelines for the World Trade 

Center complex and the implementation 

of the Campus Security Plan. The approach 

developed has helped to streamline secure 

deliveries to the complex. The HoustonGalveston Area Council partnered with 

UPS to pilot a deployment of 18 all-electric 

delivery vehicles to reduce fuel consumption 

and emissions. These examples showcase 

the importance of coordinating with 

the private sector to achieve successful 

implementation of an OLT strategy. 

• Partnering with enforcement agencies. In

cases where a public agency implemented

a new policy or regulation, ensuring strong

enforcement has been critical to their

success. When the City of Miami Beach

developed its loading zone permitting

system, it established a comprehensive

enforcement approach to cite both drivers

obstructing traffic and businesses accepting

deliveries outside loading zone hours. This

strategy holds both the vehicle operator

and the business receiving the freight

accountable for vehicle violations and has

led to reduced double parking and helped

decrease traffic congestion. Similarly, in

New Orleans, efforts to ban large trucks

from the French Quarter required additional

investment in enforcement to have an effect.

Rigorous enforcement of Federal Clean Truck

Emissions Standards ensured the success

of the Port of Los Angeles and Port of Long 

Beach Clean Trucks Program, which reduced 

emissions from drayage by 80 percent. 

Strong enforcement is critical to ensuring 

that an OLT program or policy is successful in 

meeting its goals for urban freight mobility. 

• Work with port authorities. Ports in

metropolitan areas can be significant

sources of commercial truck traffic. A

number of the strategies documented in

this Primer demonstrate how cities can work

with port authorities to reduce emissions,

mitigate noise, and preserve infrastructure

by changing the way shipments move in and

out of ports. The Port of New Orleans has

worked to shift some shipments from truck

to barge that will save the State of Louisiana

significant roadway maintenance costs. The

Massachusetts Port Authority (Massport)

worked with the City of Boston to develop

and build a dedicated freight roadway that

removed 900 truck trips per day from local

roads in and around Conley Terminal in

South Boston.

• Foster cooperation through sharing

information and/or benefits. Under

London’s Construction Logistics Program,

developers share information about

expected construction traffic with local

officials prior to the start of construction,

allowing local officials to assess traffic

impacts and negotiate reductions in vehicle

trips. The New York City WIM project shows

an example of agencies at the State, regional,

and local levels cooperating to collect and

exchange information. These agencies have

a common interest in retrieving data from

WIM sensors, and by distributing the data

to all of the agencies involved in the project,

there is a shared benefit.

• Use pilot and demonstration projects

to test and refine potential solutions.

The noteworthy practices include several

8 
Table 2. Urban Freight Success Factors and Primary Benefits 

Success Factor Primary Benefits

Engage stakeholders. Stakeholder engagement reveals local needs and helps determine 

appropriate solutions. 

Partner with the private sector. Private-sector stakeholders offer “real-world” perspective that can 

improve the success rate of new urban freight initiatives. 

Partner with enforcement agencies. Effective enforcement is critical for policy changes to have the 

intended effects.

Work with port authorities. Because of the large number of truck trips that ports generate, 

engaging ports can yield large benefits for communities and for 

private freight actors (e.g., faster turn times). 

Foster cooperation through sharing Leads to early collaboration on solutions and reduce costs of 

information and/or benefits. collecting information can be shared by multiple parties. 

Use pilot and demonstration projects Implementation of policies or technologies on a small scale limits 

to test and refine potential solutions. risk and allows for learning at lower cost. 

examples of pilot programs and small initial 

deployments of OLT strategies. For example, 

in Washington D.C., the Downtown DC 

Business Improvement District piloted an 

approach to loading zones that provided 

a model for the development of a citywide 

Commercial Loading Zone Management 

Program. In some cases the first steps 

are small due to cost and/or schedule 

considerations. In other cases, it is due to 

the fact that some solutions are generally 

or locally untested. Taking a trial-and-error 

or pilot test approach to new solutions can 

help to limit the risk. If the strategy does not 

achieve the intended goals, there is typically 

less monetary or political capital lost relative 

to a larger system-wide investment. If the 

strategy succeeds, and public and private 

sectors realize benefits, the example of that 

success can facilitate wider adoption of the 

strategy or other OLT strategies. 

9 
The noteworthy practices described in 

this primer provide examples of various 

strategies freight practitioners can employ to 

address urban freight issues. Urban freight 

strategies can provide diverse benefits 

including improvements to mobility and 

traffic flow, reductions in noise and air 

pollution, preservation of infrastructure, 

and improvements to the safety of road 

users. This chart depicts the types of benefits 

the operations, logistics, and technology 

strategies documented in this Primer can be 

used to achieve and the types of stakeholders 

that typically need to be involved for their 

successful implementation. The purple boxes 

are operations strategies, the blue boxes are 

logistics strategies, and the orange strategies 

are technology strategies. This color code is 

used throughout the primer to designate the 

type of urban freight strategy described. 

Figure 1. OLT Strategy Roadmap 

10 
2. Operations

Strategies and

Noteworthy Practices

A night-time delivery to an urban restaurant. Source: Chris Eaves, Seattle DOT.

The following section presents five strategies 

geared towards improving the operation of 

freight and goods movement in urban areas. 

Each strategy is profiled as a noteworthy 

practice, featuring a notable example of the 

strategy being implemented in the United States 

or abroad. 

Taking steps to better manage curbside loading 

areas facilitates truck loading and parking, and 

ultimately improves mobility and traffic flow. 

Trucks may be required to deliver on a sidewalk 

when an off-street loading dock or facility is not 

available, but when curbside areas are limited, 

they are often forced to circle or double park. 

Three strategies that can help improve curbside 

delivery management are: increasing the supply 

of loading zone space; implementing permitting 

systems for loading zones; and improving 

enforcement of loading zone regulations. These 

efforts are typically led by the public sector at 

the local level, but they should be developed 

and implemented in coordination with shippers, 

receivers, trucking/logistics companies, and 

local businesses. 

11 
City planners and DOTs can also designate 

and enforce truck routes to manage the flow 

of commercial vehicles on specific corridors. 

Designated truck routes can help keep trucks 

and other large vehicles out of residential 

areas and limit the damage on roadways or 

corridors that are not built to support heavy 

vehicles. Strategies that can help public-sector 

agencies implement and manage truck routes 

include: establishing a truck route network, 

implementing WIM sites for enforcement 

and data collection, improving enforcement 

of truck routes, and monitoring vehicle 

environmental performance. City planners 

and DOTs should engage with shippers, 

trucking/logistics companies, industry groups, 

community development organizations, and 

other community groups to ensure that truck 

routes are appropriately designated and limit 

negative impacts on local neighborhoods and 

communities. 

Lastly, city agencies can improve traffic control 

and lane management in urban areas to 

manage truck access in certain neighborhoods 

or travel lanes. The main objectives of 

traffic control strategies are to help protect 

infrastructure in special districts and increase 

safety. The objectives of lane management 

are to preserve infrastructure and improve 

mobility and traffic flow using truck-only or 

passenger-only lanes. City planners and DOTs 

at the city or State levels should engage with 

public and private stakeholders to ensure there 

are clear alternatives for freight vehicles to any 

restrictions that are designed to protect local 

residents and other road users. 

12 
 

San Francisco Color Curb Program

Primary Objective 

In many urban areas, particularly business 

and commercial districts, parking spaces are 

limited. In San Francisco, trucks that are loading 

and unloading often double park, extend onto 

sidewalks and roadways, or circle city blocks in 

the hopes of finding a parking space. This can 

impede traffic flow and result in parking tickets 

that increase the cost of operations for carriers. 

Clearly designating when and where freight 

activities can occur curbside can help manage 

truck access to designated spaces during peak 

delivery hours. 

The San Francisco Municipal Transportation 

Agency (SFMTA) manages the “Color Curb” 

program, which is used to regulate the City’s 

curbside space. Curbs are painted one of five 

colors to clearly designate which activities 

can occur at curbside. Yellow zones designate 

curbside areas used for active freight loading 

and unloading by commercial vehicles (those 

with a commercial license plate) during posted 

times. 

The primary goal of the color curb program is to 

provide sufficient space for both passenger and 

freight loading and unloading. When passenger 

and freight loading occurs in the streets 

without adequate curbside access, it can often 

result in traffic slowdowns (particularly public 

transit), increased congestion, and safety risks 

to bicycles and pedestrians. This is why SFMTA 

believes that securing space for loading space is 

more important than space for parking. 

Each yellow loading zone varies in length 

and time depending on the loading needs 

of the nearby businesses. However, given 

Key Accomplishments 

• SFMTA responds to 95 percent of all

color curb requests within 30 days of

submission, on average.

• SFMTA responds to approximately 80

requests for freight, passenger

loading zones, disabled parking, shortterm parking, and no-parking zones

per month. Of those requests,

approximately 5-10 loading zones are

established or altered.

• To improve freight mobility, SFMTA is

employing creative solutions to

support non-traditional deliveries. For

example, City Transportation Code

allows non-commercial vehicles to

make a delivery in a yellow loading

zone for fewer than 3 minutes.

San Francisco’s geography, topography, and 

density, most curbside loading zones cannot 

accommodate semi-trailers or other large 

vehicles. Loading zones also have specific 

posted hours of permitted usage. Hours 

generally vary, but most end by 6:00 p.m. 

in order to open to non-commercial vehicle 

parking. 

Implementation Approach 

The color curb management has been active 

and evolving in San Francisco since the 1930s. 

Over the years, it has been managed by various 

City agencies, including the Public Works 

Department, Traffic Engineering Department, 

San Francisco Police Department, and, since 

the early 2000s, SFMTA. For non-freight loading 

zones, SFMTA works closely with personnel 

 

13 
OPERATIONS STRATEGIES 

LOADING ZONE DESIGNATION 

Color curbs in San Francisco. Source: SFMTA. 

from other departments within the agency, 

such as Transit Engineering, to expand lengths 

of passenger loading zones and hours where 

appropriate. For freight loading zones, SFMTA 

relies on businesses to tell them if a loading 

zone is insufficient. In addition, SFMTA relies 

on residents and businesses to notify them of 

unused loading zones that may be better used 

for parking. 

The SFMTA Parking Enforcement Department 

strongly enforces the color curb regulations, 

and will often tow or cite non-commercial 

vehicles parked in yellow loading zones 

during effective hours. The SFMTA and the 

Police Department also issues citations for 

double-parked vehicles, which is typically 

considered a “cost of doing business” by 

carriers. To further improve compliance, SFMTA 

is looking at other ways to further reduce 

double-parking. 

Public hearings are held monthly at City Hall 

to discuss the installation of new color curb 

zones, enabling the public to comment on 

any proposed changes to City streets. SFMTA 

processes roughly 80 color curb requests 

for per month about a dozen of them are 

related to commercial loading, and regularly 

makes improvements to existing loading 

zones to better suit the needs of businesses 

and residents. SFMTA keeps records of all 

loading zones, and tracks customer satisfaction 

and response time to requests for loading 

zones. SFMTA is also considering altering the 

yellow loading zone vehicle requirements to 

accommodate certain non-commercial vehicles, 

such as those making food deliveries and 

those carrying smaller packages. Instead of 

restricting non-commercial vehicles carrying 

freight, SFMTA actively looks for new techniques 

to support these deliveries to improve urban 

freight mobility. 

Local Contact 

Paul Kniha, Color Curb Program Manager, 

SFMTA, (415) 646-2465, Paul.Kniha@sfmta. 

com 

14 
OPERATIONS STRATEGIES 

City of Miami Beach Freight/Alley Loading Parking 

Permit Program 

Primary Objective 

The City of Miami Beach implemented a loading 

zone permitting system in response to issues 

with double parking, a major contributor to 

traffic congestion, as well as noise from freight 

loading activities that was disrupting residents 

and hotel guests at night. In May 2014, the 

Mayor and City Commission approved an 

ordinance establishing new freight loading 

regulations, which took effect in August 2014. 

The City’s goal is to facilitate loading activities 

for carriers and businesses alike. The rules state 

that vehicles using new and expanded freight 

loading zones (FLZ) or alley loading (AL) areas 

require an “FLZ” or “AL” permit, respectively. 

The vehicle license plate serves as the vehicle’s 

electronic permit, and parking enforcement 

officers use license-plate recognition readers 

to confirm validity. Permittees also receive an 

online account to manage their fleet permits 

and make revisions to vehicle assignments in 

real time. 

An FLZ is a posted on-street parking area, 

typically 60 to 100 feet long, for the use of 

commercial vehicles with a gross vehicle 

weight exceeding 10,000 lbs. Posted signs 

provide permitted hours, days, time limits, 

payment options, and prohibitions. Alleys are 

city rights-of-way providing “backdoor” access 

to commercial establishments or residential 

properties for loading and unloading. An AL 

permit is granted to vehicles with a gross weight 

of less than 10,000 lbs., and is intended for the 

use of smaller vehicles servicing commercial 

establishments. This approach to loading zone 

management uses the existing curbside and 

Key Accomplishments 

• The City of Miami Beach held over

50 meetings with businesses and

carriers to discuss concerns and issues

surrounding enforcement,

and generated strong support from the

Mayor, Commission, and Police

Department.

• The city expanded its existing loading

areas to 35 FLZs totaling 3,500 curbside

linear feet (182-percent increase), which

equates to a maximum of 8,200+ freight

loading 30 and 60 minute intervals in

the district.

• Since implementing the FLZ and AL

permit programs, the City has observed

substantial reductions in doubleparking, which has helped decrease

traffic congestion. The program’s

success can be attributed to diligent

enforcement and several types of

penalties for violators.

alley areas to more efficiently facilitate carrier 

access to the City’s commercial and residential 

properties. 

Implementation Approach 

Commercial vehicles exceeding a gross vehicle 

weight of 10,000 lbs. must attain either a semiannual or annual permit. Infrequent users 

do not need to attain a permit and may pay 

for parking at a pay station or via ParkMobile, 

a mobile app. The 31 existing loading areas 

were expanded to 35 FLZs with a total of 3,500 

curbside linear feet, an increase of 182 percent. 

LOADING ZONE PERMITTING 

15 
OPERATIONS STRATEGIES 

LOADING ZONE PERMITTING 

Traffic moves past a delivery truck in Miami Beach. Source: Pixabay.com.

This equates to 8,200+ freight loading time 

slots (either 30 or 60 minutes) in the district, 

assuming an average of two vehicles per 

freight loading zone during all permitted freight 

loading hours, six days a week. Delivery hours 

vary, but are typically from 7 a.m. to 1 p.m. to 

avoid peak travel times for visitors to the beach 

or commercial shopping district. FLZ locations, 

days, and hours are monitored and adjusted 

accordingly to promote efficient use of curbside 

parking spaces. 

The Mayor and Commission, City Manager’s 

Office, City Attorney’s Office, Parking 

Department, Public Works Department, 

Transportation Department, Code Enforcement 

Department, Fire Department, and Police 

Department endorsed the program to help 

address traffic congestion. The City also held 

over 50 meetings with businesses and carriers 

to discuss concerns and issues surrounding 

enforcement. As a result of information 

gathered from these meetings, the City was 

able to come up with an effective enforcement 

approach to ensure compliance. In addition 

to citations for and towing of non-compliant 

vehicles, drivers obstructing traffic (double 

parking) can be issued moving violations (which 

affect a driver’s record) and businesses that 

accept deliveries outside FLZ hours can be 

issued city code citations. This holds both the 

vehicle operator and the business receiving 

the freight accountable for vehicle violations. 

Establishing penalties for both carriers and 

receivers was an essential part of the program’s 

success. 

Local Contact

Saul Frances, Parking Director, City of Miami 

Beach, (305) 673-7505 x6200, 

SaulFrances@miamibeachfl.gov

16 
OPERATIONS STRATEGIES 

Commercial Loading Zone Management Program in 

Washington, DC 

Primary Objective 

In 2007, the DowntownDC Business 

Improvement District (BID) in Washington, DC, 

established a pilot parking program, which 

helped build momentum for developing the 

city’s Commercial Loading Zone Management 

Program (CLZMP). Illegal double-parking of 

delivery vehicles can significantly increase 

congestion in urban areas. Increasing 

enforcement efforts can help ensure 

carriers are aware of loading zone areas and 

regulations. This strategy can be combined 

with increasing the availability of designated 

curbside access for commercial vehicles to 

both enforce existing regulations and address 

imbalances in supply and demand for loading 

zones. 

Loading zone sign (bottom) in Washington, DC. Source: 

DDOT. 

Key Accomplishments 

• CLZMP resulted in improved use of

existing loading zones within the

District through enforcement. Data

collected from this effort quantified

curbside loading demand and location

of loading zones, and led to other

curbside management pilots, such as

the Variable Pricing Pilot in Chinatown.

• Fostered partnerships with

stakeholders to communicate the

intention of the CLZMP and achieve

mutually beneficial outcomes,

including independent companies and

distributors, carriers, national and

State trucking associations, and local

BIDs.

• Improved District DOT’s collection and

management of loading zone data.

The pilot parking program first focused on 

K Street NW, one of the downtown’s busiest 

commercial thoroughfares. Assisted by the 

District Department of Transportation and 

the Golden Triangle BID, the DowntownDC 

BID collected pre-and post-pilot data on travel 

times, parking occupancy, curbside uses, 

parking turnover, and parking violations. 

Results showed travel times across all modes 

of travel improved measurably following the 

pilot’s implementation without a substantial 

disruption of commercial activity. This success 

eventually led to citywide implementation of the 

CLZMP in 2015. 

LOADING ZONE ENFORCEMENT 

17 
OPERATIONS STRATEGIES 

LOADING ZONE ENFORCEMENT

A truck is unloaded at the curbside. Source: Volpe National Transportation Systems Center.

Implementation Approach 

Communication and engagement were crucial 

to the successful implementation of the 

CLZMP. The District of Columbia DOT (DDOT) 

engaged in comprehensive stakeholder 

outreach to independent companies and 

distributors, carriers, national and State trucking 

associations, and local BIDs. It was critical for 

District DOT to convey the message that the 

CLZMP was intended to improve curbside 

management, not impose another tax on 

freight. DDOT also distributed literature about 

the CLZMP through print and online media. 

Additionally, DDOT coordinated with the City’s 

Public Works and Police Departments to clarify 

regulations on design and placement of permit 

decals. 

Improved enforcement of the CLZMP is the 

most important element of its success. To 

address carrier complaints about passenger 

vehicles using loading zone spaces, DDOT 

increased the fine for unauthorized vehicles 

from $50 to $100. Additionally, DDOT and the 

Public Works and Police Departments worked 

together to enforce the new regulations as 

the program rolled out. According to DDOT, 

jurisdictions interested in replicating this 

program should inventory existing loading 

zones and collect data on their use, coordinate 

with city police about enforcing loading zone 

changes, offer multiple methods of payment 

and investigate new forms of payment as they 

become available, and engage with carriers, 

downtown receivers, and local BIDs. Although 

DDOT did not collect data on loading zones 

prior to CLZMP, the initiative has resulted in 

better data on loading zone demand. 

Local Contact 

Laura Richards, Transportation Planner, DDOT, 

(202) 671-2226, laura.richards2@dc.gov

18 
 

Ban on Large Trucks in French Quarter District, New 

Orleans, LA

Primary Objective 

The French Quarter, one of the oldest 

neighborhoods in New Orleans, can easily be 

damaged by the height, width, length and/or 

weight of a truck or oversize vehicle that is more 

than 36 feet in length. The streets in the interior 

of the French Quarter are 22 feet wide. These 

one way streets have an 8-foot wide parking 

lane and a 14-foot wide fire lane. A study 

conducted by the French Quarter Management 

District (FQMD) found that 90 percent of 

trucks making deliveries in the French Quarter 

were shorter than 31 feet in length. However, 

larger trucks carrying containers to or from 

the Port of New Orleans would often traverse 

the neighborhood. The City found that some 

of these trucks had damaged historic homes, 

roadway infrastructure, street lights, or other 

city property. 

Oversized truck in French Quarter, New Orleans. 

Source: French Quarter Management District.

Key Accomplishments 

• With strong support from local

residents, businesses, carriers, and the

French Quarter Management District,

New Orleans City Council enacted an

ordinance prohibiting vehicles 36 feet

or more in length from traveling in the

French Quarter.

• While enforcement has been a

challenge, the popularity of the

oversized vehicle ban among New

Orleans residents and a desire to

increase compliance has led to

additional law enforcement hires

through the French Quarter Task

Force.

In an effort to prevent damaged infrastructure 

and traffic congestion, residents in New Orleans’ 

French Quarter pushed the New Orleans City 

Council to ban or restrict movement of large 

trucks and buses. In 2014, New Orleans City 

Council enacted an ordinance prohibiting 

vehicles 36 feet or more in length from traveling 

in the French Quarter of the city, except in 

certain circumstances and only after the city’s 

issuance of a single-use oversized load permit 

from the Department of Public Works. It also 

established penalties of $500 for a first offense 

and $1,000 for subsequent offenses. The 

ordinance also prohibits trucks from driving or 

parking on sidewalks or curbs. 

TRAFFIC CONTROL 

19 
OPERATIONS STRATEGIES 

TRAFFIC CONTROL 

Traffic moves past a delivery truck on a street in the French Quarter. Source: 123rf.com.

Implementation Approach 

Local residents first raised the issue and 

were the primary drivers behind getting the 

legislation passed. The City Council began 

working on the law in 2012. The French 

Quarter Management District, which is a 

political subdivision of the State of Louisiana, 

also strongly supported the ban and helped 

generate additional support with other 

stakeholders, including local businesses and 

carriers. 

In general, businesses and carriers have been 

supportive of the ban. During the legislative 

process, a beer/alcohol distribution company 

offered to pay for protective bollards to be 

installed in front of certain historic structures. 

Although this did not come to fruition, it 

demonstrated the level of commitment of some 

businesses operating in the French Quarter. 

The city posted signage to notify truck drivers 

of the ban, and FQMD notified the Port of New 

Orleans and trucking companies of the ban. 

However, as late as June 2017, the number of 

incidents involving large trucks in the French 

Quarter had not decreased noticeably. In July 

2017, the New Orleans Convention and Visitors 

Bureau began providing the FQMD funding to 

hire off-duty New Orleans Police Department 

officers to patrol the French Quarter. The duties 

of these officers includes issuing citations for 

violations of the oversize vehicle ban. These 

officers will help the City collect fines and 

ultimately improve compliance. 

Local Contact

Emily Remington, French Quarter Management 

District, (504) 323-5801, eremington@fqmd.org 

20 
 

Massport Conley Terminal Dedicated Freight Corridor 

and Park Project in Boston, MA 

Primary Objective 

Boston’s Paul W. Conley Terminal is located 

in historic South Boston, adjacent to a dense 

urban neighborhood. The terminal processed 

more than 257,000 containers in 2017, its third 

record-breaking year in a row. The terminal is 

not served by rail, but it has nearby access to 

Interstates 90 and 93. The terminal is the source 

of as many as 900 truck trips per day on local 

city streets, generating noise, vibration, and 

congestion impacts on area residents. In 2008, 

to address these impacts, the Massachusetts 

Port Authority (Massport) began the planning 

and land acquisitions necessary to build a 

dedicated freight roadway to remove container 

traffic from neighborhood streets. Construction 

of the Thomas J. Butler Freight Corridor and 

Memorial Park at Conley Terminal began in 

2014.

The 0.6-mile roadway has removed all Conley 

container trucks from East First Street and 

Summer Street in South Boston. In addition, 

the Dedicated Freight Corridor expanded 

on-terminal truck queuing areas, resolving 

community concerns over trucks queuing and 

idling on city streets near residences. The new 

roadway alignment also facilitates future plans 

to relocate the terminal’s main gate facility and 

streamline operations, as well as creating a 

spine for the terminal’s underground electrical 

and telecommunications utility infrastructure. 

The project includes a 4.5-acre landscaped 

buffer park along East First Street, which was 

built on a brownfield industrial property and 

designed through a community planning 

process. The linear park features a multi-use 

path, a dog park, and a series of interpretive 

Key Accomplishments 

• The Dedicated Freight Corridor

removes as many as 900 truck trips

per day from local roads in and around

Conley Terminal.

• Massport built a 0.6-mile long

dedicated freight corridor and 4.5-

acre buffer open space as part of

community mitigation efforts for the

expansion of the Conley container

terminal.

• The Memorial Park serves as a

landscaped buffer and noise wall,

which improves quality of life for

residents while still allowing for

expansion at the Terminal.

panels about the port and South Boston history, 

as well as a 16-foot-tall noise wall that separates 

the park and the neighborhood from the 

trucking and container terminal activities within 

the South Boston Designated Port Area to the 

north. 

Removing container trucks from East First 

Street had been a long-standing desire in the 

South Boston community and was informally 

tied to future terminal expansion plans. The 

project was envisioned after the City of Boston 

and Massport’s Port of Boston Economic 

Development Plan (1995) confirmed the 

importance of preserving a container terminal 

in the Port of Boston and determined that 

Conley Terminal needed to expand to support 

growth predictions. 

INFRASTRUCTURE IMPROVEMENT 

21 
OPERATIONS STRATEGIES 

INFRASTRUCTURE IMPROVEMENT

 

Implementation Approach 

The Dedicated Freight Corridor traverses 

several former industrial properties including 

the Exelon Power Plant, a former emergency 

power plant for the Massachusetts Bay 

Transportation Authority (MBTA), and the 

former Coastal Oil petroleum storage facility. It 

took more than 5 years of advanced planning, 

land purchases, and legislative changes 

to transfer land parcels from the MBTA to 

Massport before construction could begin. 

Funding for the project came primarily from 

Massport bond offerings. The $75 million 

corridor opened in September 2017. 

Establishing community support and a sense 

of community ownership was critical in all 

project phases. Beginning in 2009, Massport 

conducted many community meetings in South 

Boston to address the overall project. A design 

advisory committee of local residents and 

elected officials collaborated with Massport and 

its consultant design team over approximately 

18 months to arrive at the design for the Butler 

Memorial Park. Massport also worked with 

a number of municipal, State, and Federal 

agencies as part of the project planning, that 

included the U.S. Army Corps of Engineers, 

U.S. Coast Guard, Boston Transportation 

Department, the MBTA, and the Massachusetts 

Environmental Policy Act Office, among others. 

Local Contacts

Kevin McWeeney, Senior Transportation 

Planner/Project Manager, Massport, (617) 568-

5952, KMcWeeney@massport.com 

Laura Gilmore, AICP, Senior Transportation 

Planner/Project Manager, Strategic & Business 

Planning, Massport, (617) 568-1083, lgilmore@ 

massport.com

22 
3. Logistics Strategies

and Noteworthy

Practices

New York City streetscape. Source: Alison Conway, City University of New York. 

The following section presents four strategies 

geared towards improving the operation of 

freight and goods movement in urban areas. 

In the following pages, each strategy is profiled 

as a noteworthy practice, featuring a notable 

example of the strategy being implemented in 

the U.S. or abroad. 

The four strategies discussed in this section 

include off-hours delivery, pick-up/delivery 

reservation systems, modal shifts, and freight 

consolidation. These strategies are typically 

pursued by private sector stakeholders with the 

goals of improving their supply chain efficiency 

and reducing the costs associated with delays, 

congestion, and ticketing. Logistics strategies 

also help address issues with mobility and 

traffic flow, communication between shippers 

and receivers, and quality of life and community 

benefits in residential areas. These types of 

strategies can also lead to new freight delivery 

technologies that can be applied in a variety of 

contexts. 

23
Trucks and a bicyclist share a road leading into Seattle. 

Source: Chris Eaves, Seattle DOT.

Off-hours delivery strategies can help to reduce 

freight contributions to traffic congestion and 

reduce competition for parking. However, 

these strategies need to address residential 

concerns regarding noise and must be closely 

coordinated with receivers. Advance pick up/

delivery reservation systems can be used to 

shorten loading times and provide solutions 

to parking, congestion, and security issues. 

Where feasible, shifting freight off of streets 

and highways and on to rails or waterways 

can reduce wear and tear on roadways and 

improve the efficiency and reliability of freight 

movements. Consolidating planned freight 

movements to reduce the number of shipments 

requires planning and coordination, but can 

reduce the negative impacts of freight deliveries 

on traffic and residents. 

Private sector stakeholders that pursue 

logistics strategies to better adapt to urban 

areas should engage with not only shippers, 

receivers, trucking/logistics companies, and 

other industry stakeholders, but also with local 

and public sector stakeholders that may be 

either positively or negatively impacted by any 

changes to a supply chain or delivery method. 

The end goal for all stakeholders is to minimize 

external conflicts while maximizing cost savings 

and efficiency. 

24 
LOGISTICS STRATEGIES 

Off-Peak City Logistics Pilot in Stockholm, Sweden

Primary Objective 

The City of Stockholm, Sweden initiated an 

off-peak delivery pilot project in 2014 to better

organize urban freight transport and reduce 

traffic congestion. The goals were threefold: 1)

make deliveries more flexible; 2) urge transport

companies to invest in newer, quieter, and 

more environmentally friendly trucks; and 3)

increase efficiency for all transportation modes

to improve the safety and livability of the city for 

its inhabitants. In addition, the city anticipated

that off-peak deliveries could improve working

conditions for drivers, since there would be less 

congestion, greater travel time reliability, and 

less anxiety. 

The goal of voluntary off-peak or off-hour

delivery programs is to reduce congestion 

and pollution from truck traffic by providing

incentives to urban receivers to shift daytime 

deliveries to “off” hours. However, in Stockholm

there are regulations prohibiting deliveries 

between the hours of 10:00 p.m. and 6:00

a.m. due to concerns about noise. To explore

Off-peak delivery in downtown Stockholm, Sweden.

Source: Stockholm Off-Peak City Logistics Project.

Key Accomplishments 

• Despite regulations prohibiting

deliveries between the hours of

10:00 p.m. and 6:00 a.m., the City of

Stockholm permitted two companies

to participate in the Off-Peak City

Logistics Pilot to determine whether

off-hour delivery programs could

reduce congestion and pollution from

truck traffic.

• Truck drivers participating in the pilot

reported increased efficiency, shorter

travel and delivery times, higher

productivity both for carriers and

receivers, less environmental impacts

and fuel cost savings, as well as better

working conditions when trucks are

moved from rush hours to off-peak

hours.

• Driving speeds for off-peak deliveries

were 31 percent higher than driving

speeds for deliveries made during the

morning peak.

• The results of the pilot suggested that

off-peak deliveries could work well in

the Stockholm region and a follow-up

study is being considered.

the benefits of lifting this ban, the Stockholm

pilot permitted two companies to operate one 

vehicle each for off-hour deliveries. The project

team tested nighttime distribution using a 

hybrid electric vehicle and a biogas vehicle for 

delivering goods to three retail establishments 

and to a variety of hotels and restaurants. 

The results of the pilot suggested that off-peak

deliveries could work well in the Stockholm 

OFF-HOUR DELIVERY

25 
LOGISTICS STRATEGIES 

OFF-HOUR DELIVERY

One of the pilot vehicles traveling through Stockholm at 

night. Source: Stockholm Off-Peak City Logistics Project.

region and a follow-up study is being 

considered. From the city’s perspective, the 

most important remaining challenges are noise 

measurements, surveillance (e.g., permitted 

vehicles, fuel type, and emission levels), and 

additional costs of potential infrastructural 

changes. 

Implementation Approach 

Although the City of Stockholm initiated the 

project and provided organizational support 

throughout the pilot, KTH Royal Institute of

Technology actually managed the project. The 

pilot test occurred over a 2-year period from 

2015 to 2016. The outcomes were analyzed for

transport efficiency, environmental impacts of

noise, and policy measures and stakeholders’ 

perspectives. 

Several different stakeholders made important

contributions to the pilot. Two major producers 

of heavy trucks provided two state-of-the-art, 

environmentally-friendly distribution trucks. 

A company specializing in silent systems for 

distribution (e.g., rolling cages) provided the 

necessary equipment. Two of the biggest 

logistics companies in Sweden participated 

by delivering goods during nighttime hours to 

their customers. In addition, an international

retail company operating in off-peak hours in

other countries volunteered to test the model in 

Stockholm. 

The study team found that the benefits of offpeak deliveries exceeded the costs. 

Furthermore, all participants in the pilot were 

pleased with the improvements in freight 

mobility in downtown Stockholm. Given the 

small scale of the pilot, it is difficult to make

broad conclusions about the potential benefits

of more widespread application of off-peak

deliveries. KTH Royal Institute of Technology is

eager to conduct another pilot project to build 

off the success of the first pilot study.

Local Contact

Anna Pernestål Brenden, PhD, Researcher 

& Program Manager, Integrated Transport 

Research Lab at KTH Royal Institute of 

Technology, +46 8 790 7324, pernestal@kth.se 

26 
LOGISTICS STRATEGIES 

Trusted Access Program and Vehicle Security and Scheduling 

System at New York City’s World Trade Center

Primary Objective 

Few locations in American cities are as secure 

and guarded as New York City’s World Trade 

Center (WTC). The reconstruction of the WTC 

complex after the attack of September 11, 2001, 

emphasized safety and security of the site and 

its workers and visitors. As such, the capacity 

to control access to the complex and to screen 

vehicles for potential threats had to be built into 

the reconstruction. 

The WTC features a Transportation Hub that 

connects the Port Authority Trans Hudson 

trains to and from New York and New Jersey 

with several New York City Transit Subway 

lines, commercial office towers One, 2, 3, 

4, and ultimately 5 WTC, the One World 

Observatory, the National September 11th 

Memorial and Museum, and Liberty Park, as 

well as hundreds of thousands of square feet 

of retail space and pedestrian plazas. The WTC 

is a restricted access campus that is owned by 

the Port Authority of New York and New Jersey. 

It is protected by multiple security agencies, 

including the New York City Police Department, 

two Port Authority Police divisions, and multiple 

private security companies. There is a constant 

police presence and command station on-site. 

Access for delivery vehicles is facilitated using 

a Trusted Access Program (TAP) that features a 

Vehicle Security and Scheduling System (VS3). 

The TAP and VS3 systems provide security and 

control access to the complex. They also used 

the system to assist in managing utilization 

of loading dock space. Use of the system in 

this manner reduced inefficiencies that many 

businesses experience when truck drivers 

Key Accomplishments 

• Developed an efficient system

for managing vehicle and driver

information, allowing law enforcement

and stakeholders to know who is

traveling onto the WTC complex and for

what purposes.

• Implemented a screening process

that can accommodate daily demand

without delays or queuing of trucks.

• Turned critics into supporters by

offering a superior level of service with

more reliability than “traditional” urban

delivery.

have to search for an open loading dock or a 

curbside place to make deliveries. Managing 

deliveries through a reservation system, with 

or without the security element, is applicable in 

other urban environments in the U.S. 

Implementation Approach 

In developing the WTC complex, the Port 

Authority, New York City, and other on-site 

stakeholders collaborated on the development 

of commercial design guidelines for the WTC. 

The guidelines included specifications for 

streets, sidewalks, signage, street furniture, 

and other aspects of the site design. 

Additionally, the Port Authority and New York 

City collaborated in the development and 

implementation of a WTC Campus Security Plan 

to delegate roles and responsibilities governing 

access and security. The Port Authority also 

visited and interviewed managers of other large 

urban campuses in New York City, including the 

RESERVATION SYSTEMS FOR PICK-UP AND DELIVERY LOCATIONS

27 
LOGISTICS STRATEGIES 

RESERVATION SYSTEMS FOR PICK-UP AND DELIVERY LOCATIONS

Jacob Javits Convention Center and Rockefeller 

Center, to learn about best practices while 

developing and implementing the TAP and VS3 

systems. 

The VS3 system is a database of driver and 

vehicle information, associating site tenants 

with the companies that deliver to them. The 

VS3 system also manages delivery schedules 

and loading dock utilization. Each building 

has its own loading docks and a manager who 

establishes rules for delivering to their docks, 

such as length of delivery window and length of 

registration validity, among others. Using the 

VS3 system, building tenants schedule deliveries 

and loading dock managers approve the 

delivery requests. 

The VS3 system is used to pre-register all 

vehicles and drivers that require access to the 

WTC complex, including delivery vehicles, black 

cars, and employees’ personal vehicles. When 

drivers enroll in the VS3 system, they provide 

information about the company, driver, vehicle 

plate, and vehicle identification number (VIN). 

Rather than generate a unique driver ID card, 

the system manages driver records using 

driver’s license numbers. This requires less data 

and equipment management on the part of the 

system managers and drivers. 

When entering the WTC, every vehicle 

undergoes a certain level of screening 

depending on where it is making a delivery 

onsite. Delivery vehicles headed below-ground 

receive a full x-ray, personal vehicles are 

screened by canine service dogs, and streetlevel delivery vehicles are physically inspected 

and weighed. The security process for delivery 

vehicles takes approximately 15-20 minutes 

from start to end. On average, over 1,000 trucks 

per week are processed with no delays or 

backups at the screening checkpoints. 

The system is expected to efficiently process 

upwards of 800 trucks, 500 private automobiles, 

and hundreds of livery vehicles per day once 

the complex is fully built out. 

Each property owner and manager at the 

WTC, including the Port Authority, Silverstein 

Properties, The Durst Organization, Westfield 

Corp, and the National September 11 Memorial 

& Museum, shares in the cost of operating the 

Vehicle Security Center that processes all the 

vehicles going to below-ground loading docks 

and parking areas. The payments help recoup 

the cost of VS3 System and gantry scanners, 

but the cost of staffing both guards and canine 

service dogs is a large and ongoing expense. 

The Port Authority meets monthly with Trusted 

Access Program stakeholders to review 

performance statistics and discuss feedback 

on any issues or concerns. The partnership is 

highly collaborative, and all parties agree that 

while security is critically important, businesses 

need to be able to thrive as well. Prior to 

implementing the VS3 system, some businesses 

were concerned that the system would be too 

onerous and could negatively impact business. 

However, businesses continue to flourish at 

the WTC, and the VS3 and TAP systems work 

effectively, and often even more reliably 

than typical urban deliveries outside the WTC 

Complex. 

Local Contacts 

Jolene Yeats, AICP, World Trade Center 

Transportation and Planning Manager, Port 

Authority of New York and New Jersey, jyeats@

panynj.gov 

George Anderson, Director of Security at World 

Trade Center, Port Authority of New York and 

New Jersey, ganderson@panynj.gov

28 
LOGISTICS STRATEGIES 

U.S. Maritime Administration Grant to Support Containeron-Barge Service between Ports of Greater Baton Rouge and

New Orleans

Primary Objective 

In response to a booming chemical industry 

in Louisiana, the Ports of New Orleans and 

Greater Baton Rouge, SEACOR AMH, and 

Ports America began operating container-onbarge shuttle service in July 2016 between 

Baton Rouge and New Orleans to support the 

transportation of petrochemicals via inland 

waterway transportation. Container-on-barge 

is a type of intermodal freight transport where 

containers are moved by barge instead of by 

truck. The service repositions empty containers 

from Memphis, where there is a surplus, to 

Baton Rouge. From there, empty containers 

are filled with plastic resins and then shipped 

again via barge to New Orleans, where they 

are loaded onto container ships bound for 

international destinations. The service currently 

runs between seven and nine hopper barges 

per week, providing exporters with a waterway 

alternative for repositioning containers that 

would otherwise move by truck or rail. 

According to data from a U.S. DOT study, the 

State of Louisiana has the potential to recoup 

$118 million in roadway maintenance savings 

by moving a 40-foot container round trip 

between New Orleans and Baton Rouge by 

barge rather than over the road. At nine 

barges per week, the container-on-barge 

shuttle service has the potential to eliminate 

up to 22,500 truck trips per year and save 

approximately $1.3 million annually in roadway 

maintenance costs. 

Key Accomplishments 

• Partnership between the Ports of New

Orleans and Greater Baton Rouge,

SEACOR AMH, and Ports America

established container-on-barge service

between Memphis, Baton Route, and

New Orleans.

• Partners jointly received a $1.75 million

grant from U.S. Maritime

Administration to purchase equipment

to expedite processing.

• Container-on-barge shuttle service runs

7-9 hopper barges per week, with the

potential to eliminate between 336 and

432 truck trips per week (up to about

22,500 truck trips per year).

• State of Louisiana has the potential to

recoup $118 in roadway maintenance

savings by moving a 40-foot container

round trip between New Orleans and

Baton Rouge by barge rather than over

the road.

Implementation Approach 

The Port of New Orleans and SEACOR have 

been in talks since 2014 about ways to utilize 

inland water transportation to support 

Louisiana’s petrochemical production. In 

October 2016, the U.S. Maritime Administration 

(MARAD) jointly awarded SEACOR (operator 

and developer of container-on-barge shuttle 

service), the Ports of New Orleans and Greater 

Baton Rouge, and Ports America (terminal 

operator of both ports) a grant of $1.75 million 

MODAL SHIFTS

29 
LOGISTICS STRATEGIES 

MODAL SHIFTS

Container-on-barge activity at the Port of New Orleans, Louisiana. Source: Port of New Orleans.

to acquire specialized container loading 

equipment for the container-on-barge shuttle 

service to increase the processing speed of 

loading and unloading containers onto the 

hopper barges. SEACOR will provide a 20 

percent match for the Port of New Orleans 

equipment, and the Port of Baton Rouge will 

provide a 20 percent match for its equipment. 

One set of equipment will be at SEACOR’s 

Memphis terminal owned by the Port of New 

Orleans, and the second set of equipment will 

be at SEACOR’s Baton Rouge terminal owned 

by the Port of Greater Baton Rouge. SEACOR 

will lease the equipment from each port for a 

nominal fee. 

The Port of New Orleans equipment will be 

acquired once the Port identifies and selects a 

U.S.-based manufacturer. The Port of Greater

Baton Route will acquire its container handler

equipment once it is approved for a waiver from

a Buy America requirement that the equipment

be purchased from a U.S.-based manufacturer.

This type of equipment is not currently

produced domestically.

Local Contact 

Janine Mansour, Commercial Director of Port 

of New Orleans, (504) 528-3533, moreauj@ 

portno.com

30 
LOGISTICS STRATEGIES 

London’s Construction Logistics Program and 

Construction Consolidation Centers 

Primary Objective 

In recent years, the city of London has 

experienced a boom in construction, resulting 

in a significant number of constructionrelated truck trips in the city each day. 

According to Transport for London (TfL), the 

city’s transportation agency, the construction 

industry generates 35 percent of London’s 

daytime truck traffic and 38 percent of all traffic 

during the morning rush hour. To reduce the 

volume and impacts of construction-related 

vehicle movements, TfL has developed a 

multi-faceted construction logistics program, 

which focuses on the safety risks posed by 

construction vehicles traveling on city streets. 

Two elements of the program, construction 

logistics plans (CLPs) and construction 

consolidation centers (CCCs), focus on the 

traffic impacts of construction logistics. 

Construction Logistics Plans 

The City of London and many of the boroughs 

that make up greater London require that 

proposals for certain types of construction must 

be accompanied by a construction logistics 

plan (CLP). A CLP must include details on the 

expected levels of construction traffic that will 

be generated by the project, the routes that 

traffic will use, and measures the developer 

will take to reduce traffic impacts during 

construction of the project. 

TfL has published guidance so that planning 

authorities and developers have a mutual 

understanding of what a high-quality CLP 

should include. This guide describes a menu 

of “planned measures,” which are specific 

Key Accomplishments 

• TfL published guidance on CLPs and

developed a two-day training course.

• Since May 2017, more than 200

individuals have taken the TfL course on

construction logistics planning.

• TFL published a directory and map of

CCCs in or near London.

• The number of CCCs operating in London

has grown from 9 in 2015 to 12 as of fall

2016.

techniques for reducing or otherwise managing 

construction-related trips that developers 

commit to use during the planning permission 

process. TfL has also developed a two-day 

training course in construction logistics 

planning. This training brings together all of 

the key stakeholders involved in the drafting, 

approval, and implementation of a CLP and 

educates them about the range of planned 

measures that are available. 

One of the benefits that TfL has seen from the 

use of CLPs is that planning authorities can 

better assess the potential cumulative traffic 

impacts of multiple construction projects 

being proposed for a particular part of the city. 

Another benefit of CLPs is that it generates 

discussion of potential traffic impacts of a 

project at the time that developers are seeking 

legal permission to build. It is at this time that 

developers are most willing to agree to take 

steps to reduce vehicle trips. 

U.S. cities typically require developers of larger 

projects to prepare transport control plans. 

FREIGHT CONSOLIDATION 

31 
LOGISTICS STRATEGIES 

FREIGHT CONSOLIDATION

Cover of the Tfl directory of CCCs. Source: TfL.

These plans typically elaborate how a developer 

will manage the flow of traffic around the 

construction site. The plans also identify the 

routes that vehicles will take to and from the 

site. However, they differ from CLPs in that they 

generally do not require a developer to consider 

ways to reduce the number of vehicle trips 

generated by a construction project. 

Promotion of CCCs 

CCCs are one of the planned measures or 

management techniques promoted by TfL. 

Consolidation centers are facilities where 

the freight shipments that are destined for a 

facility, site, or limited geographical area are 

collected and then delivered as consolidated 

loads. The purpose of adding a consolidation 

center into the freight distribution network is to 

reduce the number of “last-mile” vehicle trips 

by different carriers to the target destination. 

In the case of CCCs, the freight in question is 

building material, and the target destinations 

are construction sites. 

In addition to consolidating shipments, CCCs 

can offer a number of additional services 

to builders, such as short-term storage 

of materials, pre-fabrication of building 

components, security screening, and reverse 

logistics (i.e., management of waste). CCCs can 

also serve as a queuing area for vehicles that 

are already fully loaded, which is helpful in 

cases in which there is a shortage of space for 

vehicles to wait near the construction site. 

London and other cities in Europe have used or 

considered temporary CCCs for specific large 

development projects. In London, CCCs were 

used successfully for construction at Heathrow 

Airport and for preparations for the 2012 

London Olympics. However, unlike in other 

European cities, London now has numerous 

CCCs that are operating on an ongoing basis 

without public subsidies. According to TfL staff, 

London’s CCCs generally receive their revenue 

from the developers and the costs amount 

to roughly two percent of the cost of the 

development. However, the cost depends on 

the exact mix of services provided by the CCC. 

To promote the use of these facilities, TfL 

published its first directory of CCCs in 2015. 

That first edition identified nine CCCs operating 

in or near London. Updated in fall 2016, the 

directory now lists 12 CCCs. The TfL directory 

provides details on each CCC, including capacity, 

location, and contact details. It also includes a 

map that shows the areas of London that are 

within a 30-minute drive of a CCC. TfL hopes 

that by showing the geographic reach of CCCs, 

the directory will spur greater usage of them. 

The map also shows the market potential in 

parts of the city not currently within a halfhour’s drive of an existing CCC. 

Local Contact

Peter Binham, Freight and Fleet Program 

Manager, Transport for London, 020 3054 6072, 

peterbinham@tfl.gov.uk

32 
4. Technology

Strategies and

Noteworthy Practices

A container ship is unloaded at the Middle Harbor Terminal at the Port of Long Beach, California. In the midst of 

modernization, this terminal will be highly automated and will use electrification and other technologies to reduce air 

emissions significantly. An expanded on-dock rail yard will reduce the traffic impacts from the terminal’s expanded 

capacity. Source: Port of Long Beach. 

The following section presents seven strategies 

geared towards improving technology solutions 

pertaining to freight and goods movement 

in urban areas. In the following pages, each 

strategy is profiled as a noteworthy practice, 

featuring a description of the Technology 

strategy, its primary objective, and a notable 

example of the strategy being implemented in 

the U.S. or abroad. The strategies are organized 

into three groups: real-time information 

systems, safety technologies, and environment 

and energy technologies. 

Technology solutions to urban freight and 

mobility issues have the potential to be 

implemented by both public and private sector 

stakeholders. Investing in real-time information 

systems to communicate truck parking 

availability and to manage truck parking spaces 

can help improve mobility and traffic flow, 

communications, and safety conditions in urban 

areas. A lack of truck parking near urban areas, 

which tend to have high concentrations of 

freight generators such as ports or distribution 

centers, can lead to higher instances of truck 

33 
crashes as a result of illegal parking. Truck 

drivers require adequate truck parking facilities 

to comply with HOS regulations, and may be 

forced to park illegally when legal parking is not 

available or the location of available parking is 

not known. Real-time information systems at 

public and private parking facilities can help 

communicate information to drivers on where 

it is safe and legal to park near urban areas. 

Developers of these facilities – whether in the 

public- or private-sector – can use feedback 

from truck drivers, carriers, and industry groups 

to better understand where there is a demand 

for truck parking, and determine whether more 

truck parking or real-time availability systems 

would be most beneficial.

A primary concern for public transportation 

agencies is roadway safety. This is especially 

true in congested urban areas where numerous 

conflicts between modes are present. 

Technology strategies can also help enhance 

the safety of urban goods movement in urban 

areas. Safety-oriented technologies, such as 

truck design and detection and alerts, can in 

turn help preserve infrastructure and enhance 

the communication of potential risks to safety, 

particularly in high-traffic areas or residential 

neighborhoods. Truck design enhancements 

can include expanded mirror and lens systems, 

truck side guards to reduce bicycle and 

pedestrian fatalities, and high-visibility cabs. 

Detection and alert technologies include camera 

systems, over-height detection systems to 

prevent crashes and infrastructure damage, 

advanced blind-spot awareness and warning 

systems, and external alert systems to warn 

bicyclists and pedestrians who are near the 

turning path of the truck. Safety technologies 

can involve both public-sector stakeholders 

such as DOTs, as well as trucking and logistics 

companies who invest and implement these 

technology solutions. 

Lastly, environment and energy technologies 

can be used to help cities meet emissionsreduction goals to improve quality of life in 

urban communities. The vehicles and vessels 

used to transport freight are a significant 

source of air pollutants. Emissions from diesel 

engines, especially PM2.5, NOx, and other 

air toxics can contribute to significant health 

problems. However, vehicle technologies that 

produce fewer emissions and/or use alternative 

fuels can go a long way towards improving air 

quality. Strategies to spur investment in these 

areas include anti-idling regulations, clean truck 

programs at U.S. ports, and financial incentives 

for freight carriers to upgrade old equipment. 

These efforts typically require coordination 

between public sector agencies and trucking/

logistics companies, frequently with input from 

local residents, community groups, and other 

institutions with an interest in environmental 

justice and green technology. 

34 
TECHNOLOGY STRATEGIES 

Truck Parking Availability System in Florida

Primary Objective

In Florida, the limited availability of truck 

parking spaces causes overcrowding and 

overflow at existing truck parking spots. At 

times, truck drivers turn to parking on the 

interstate mainline, ramp shoulders, or in 

vacant lots. These practices are hazardous and 

prohibited, and can leave drivers vulnerable 

to cargo theft. The shortage of truck parking 

affects the flow of goods moving to and from 

shippers and receivers, particularly in and 

around urban areas. 

To address the issue, the Florida Department 

of Transportation (FDOT) is installing a Truck 

Parking Availability System (TPAS) along I-4, 

I-10, I-75 and I-95 at welcome centers, weigh

Key Accomplishments 

• After two successful test project

deployments in Leon and St. John’s

Counties, FDOT applied for and

received a $1 million Accelerated

Innovation Deployment grant and

a $10.7 million FASTLANE grant for

statewide deployment of TPAS.

• FDOT is deploying TPAS throughout the

entire Florida interstate system public

parking areas (welcome centers, rest

areas and weigh stations) between

2017 and 2019.

• TPAS is helping truck drivers maximize

their HOS requirements by lowering

the amount of time spent to find

parking spaces.

stations, and rest areas. This system will help 

truckers find available truck parking spaces. To 

detect the availability of parking, TPAS uses inground sensors in the truck areas at interstate 

rest areas/welcome centers, and entryway and 

exit counts at weigh stations. The information 

will then be shown on roadside embedded 

dynamic message signs as well as the State’s 

FL511 site and app for drivers to access, and will 

be available for use in third-party applications. 

TPAS will help truck drivers maximize their 

hours-of-service requirements by lowering the 

quantity of time spent to find parking spaces, 

permitting them to focus on the movement 

of products. TPAS will allow drivers to see the 

number of spaces that are currently available at 

a common location. 

Installation of TPAS technology. Source: FDOT.

REAL-TIME TRUCK PARKING AVAILABILITY

35 
TECHNOLOGY STRATEGIES 

REAL-TIME TRUCK PARKING AVAILABILITY

Tractor-trailers parked at a truck stop. Source: 123rf.com. 

Implementation Approach 

To address the imbalance of truck parking 

capacity due to the lack of parking information, 

FDOT submitted and was awarded an FHWA 

Accelerated Innovation Deployment grant of $1 

million in 2015. The Federal grant, along with 

FDOT funding, will be used to deploy the TPAS 

at seven public parking sites located along I-4 

and I-95 in FDOT District 5. In 2016, FDOT also 

received a Federal FASTLANE grant of $10.7 

million to support the full deployment of TPAS. 

The total cost of deployment is $24 million, half 

of which will come from State funds. The project 

in FDOT District 5 is the first of a number of 

installations across the State. Additional sites 

across the State are being installed in phases 

throughout 2017. 

The biggest challenge of the statewide TPAS 

deployment was coordination with FDOT’s six 

districts involved in the program. FDOT project 

managers met with each district individually to 

promote the project and gain support, which 

was an effective engagement strategy. FDOT 

engaged with shippers and carriers to garner 

further support of the program. In addition, 

during subsequent phases of the program, 

FDOT expects to coordinate with third-party 

vendors to integrate private parking facilities 

into TPAS and to provide availability and 

predictive analysis at every truck parking site 

statewide. 

TPAS will be deployed by each FDOT district 

between 2017 and 2019. As statistically 

sufficient data is aggregated, algorithms will 

predict parking availability based on trends in 

parking utilization. FDOT plans to make this 

information available through data feeds, thus 

enabling motor carrier operators to make more 

informed trip plans. 

Local Contact

Marie Tucker, Commercial Vehicle Operations 

Manager, FDOT, (850) 410-5619, Marie. 

Tucker@dot.state.fl.us

36 
 

Gregson Street Bridge Overheight Detection and Alert 

System 

Primary Objective 

A rail bridge passes just 11 feet 8 inches above 

South Gregson Street in downtown Durham, 

NC. Due to the low clearance under the bridge, 

South Gregson Street is not a truck route, and 

most professional truck drivers avoid the area. 

However, over time, numerous truck drivers 

have collided with the bridge. The bridge has 

even gained social media fame from online 

videos showing trucks and other types of 

vehicles striking it. To reduce the frequency 

of vehicle collisions with the bridge, the 

North Carolina Department of Transportation 

(NCDOT) installed a warning system that detects 

overheight vehicles and warns the drivers in 

real time that they cannot fit under the bridge 

and advises them to use an alternative route. 

The system also triggers a red light at the 

intersection immediately before the bridge to 

give drivers more time to observe the warning 

signal. 

According to NCDOT, prior to installation of 

the warning system, there were an average of 

1.4 bridge strikes per month. In most cases, 

the drivers who collide with the bridge are not 

professional truck drivers. Most professional 

A truck approaches the Gregson Street bridge in August 

2017. Source: Jürgen Henn – 11foot8.com.

Key Accomplishments 

• NCDOT successfully applied State and

Federal safety funds to implement a

relatively low-cost solution aimed at

reducing the frequency and severity of

truck-bridge collisions.

• According to preliminary data, crash

frequency has fallen from an average

of 1.4 to 0.4 crashes per month.

• Anecdotal evidence suggests the

severity and cost of damage associated

with crashes at this location have

diminished since the new detection and

warning system was installed.

truck drivers use truck-specific navigation 

systems, and they are aware of the vertical 

clearance needed to accommodate the vehicles 

they drive. Instead, many of the drivers who 

collide with the bridge are individuals who are 

driving rented vehicles such as moving trucks. 

Many of these drivers are unsure of the height of 

the vehicle they are driving, or they erroneously 

assume that the vehicle they are driving will be 

able to fit beneath the bridge. 

Implementation Approach 

In the mid-2000s, NCDOT’s Division 5 installed 

an overheight detection system before the 

Gregson Street bridge that used a laser to detect 

high objects (including trucks) approaching the 

bridge. The system then activated a flashing 

sign to warn the driver of the low-clearance 

bridge ahead. This system also included signage 

to direct drivers to a truck detour route. This 

system had flaws, however. Many of the drivers 

OVERHEIGHT DETECTION AND ALERTS

37 
TECHNOLOGY STRATEGIES 

OVERHEIGHT DETECTION AND ALERTS

The Gregson Street Bridge with the previous overheight detection and warning system. Source: Washuotaku, 

Wikimedia Commons, licensed under the Creative Commons Attribution-Share Alike 4.0 International license.

who collided with the bridge after this system 

was installed claimed that they did not see 

the signal or were not sure that the signal was 

directed toward them. 

In 2016, NCDOT installed a new system. When 

an overheight vehicle is detected, the new 

system triggers a newer, larger warning sign, 

which reads “OVERHEIGHT, MUST TURN.” The 

system also triggers the traffic light at the 

intersection immediately before the bridge to 

turn red and stop traffic. By stopping traffic at 

the intersection, the new system provides a 

better opportunity for the truck driver to observe 

the warning sign and decide to turn and avoid a 

collision. In addition, if the truck driver ignores 

the warning and proceeds when the light turns 

green, it is moving at a slower speed than if it 

had been passing through at the posted speed 

limit of 25 miles per hour, thus reducing the 

severity of crashes that occur. 

The new system was funded with both State and 

Federal Highway Safety Improvement Program 

funds, which were awarded through a statewide 

competitive application process. The NCDOT’s 

Division 5 office submitted the application, and 

NCDOT Headquarters selected the project for 

funding due to the frequency of collisions in 

this location. The project cost approximately 

$150,000 and included treatments to 

ensure context-sensitivity in the downtown 

environment. According to NCDOT, the cost of 

installing a similar system cost could be lower in 

an environment where such treatments are not 

necessary. 

Since the project was completed in 2016, 

preliminary data collected by NCDOT indicates 

that collisions have declined significantly, from 

1.4 per month to less than 0.4 per month. 

Soon, NCDOT will perform a comprehensive 

review of the data to determine the longterm reductions in the number of collisions, 

crash severity, and costs. However, the project 

appears to have been successful in reducing 

the frequency and severity of crashes at this 

location. NCDOT division offices, as well as other 

State DOTs, have been in contact with NCDOT 

Division 5 to acquire additional information 

about this project. 

Local Contact

John E. Sandor, P.E., NCDOT, 919-220-4600, 

jesandor@ncdot.gov 

38 
TECHNOLOGY STRATEGIES 

Weigh-in-Motion (WIM) Sensor Installation in New 

York City 

Primary Objective 

New York City DOT (NYCDOT) uses WIM 

technology to monitor truck activity on 

bridges and roadways. Overweight trucks 

can accelerate the deterioration of pavement 

and bridge structures, and overheight trucks 

can strike bridges and overpasses, damaging 

infrastructure and causing traffic delays from 

strike incidents. In addition, without monitoring 

and enforcing weight limits, carriers who 

operate overweight vehicles gain an unfair 

advantage over carriers who comply. 

The WIM sensors weigh each truck that travels 

over them and transfers data electronically 

to NYCDOT staff for analysis. Data are used 

to develop assessments of the number of 

overweight trucks and to monitor trends, 

giving NYCDOT valuable information to 

quantify problems, target information and 

enforcement activities, and rally other agencies 

and stakeholders toward implementing 

solutions. The WIM data also provides valuable 

information on truck travel patterns and 

Installation of a WIM site in New York City. Source: 

NYCDOT.

Key Accomplishments 

• Developed a network of planned WIM

sites to monitor truck weights on key

corridors and gateways, and installed 3

sensors between 2014 and 2016.

• Collaborated with multiple agencies to

incorporate WIM into a major bridge

rehabilitation project.

• NYCDOT is using WIM data to inform its

citywide Smart Truck Management Plan

and other city initiatives.

• After installing first WIM sensor

on Alexander Hamilton Bridge,

NYCDOT determined that almost

7 percent of the trucks using the

bridge daily were overweight. This

level of non-compliance was not only

surprisingly high, but also it has serious

implications for bridge and highway

conditions.

is being used to support truck route, asset 

management, and other policy decisions. 

NYCDOT is deploying WIM sensors at strategic 

locations along major truck routes entering and 

exiting the city. The first deployment was on 

I-95 at the Alexander Hamilton Bridge in July

2014. About 50 percent of all trucks entering the

city travel on this highway segment. Installing

WIM at the bridge provided an opportunity to

gather data on a large portion of the truck traffic

traveling into and out of the city.

WIM is not used for enforcement, as State 

law currently does not allow this method of 

39 

WEIGH-IN-MOTION SITES FOR ENFORCEMENT AND DATA COLLECTION
 

WEIGH-IN-MOTION SITES FOR ENFORCEMENT AND DATA COLLECTION

 

enforcement, and NYCDOT would like to further 

calibrate and improve the accuracy of the 

WIM before seeking the authority to use the 

technology for enforcement purposes. 

Implementation Approach 

This initiative was led by NYCDOT in cooperation 

with New York State DOT and the Port Authority 

of New York & New Jersey. NYCDOT recognized 

an opportunity to coordinate with New York 

State DOT in advance of a planned $415 

million rehabilitation project on the Alexander 

Hamilton Bridge. WIM allows New York State 

DOT to monitor truck activity on its asset, I-95, 

and allows the Port Authority to monitor truck 

activity on this approach to one of its nearby 

assets, the George Washington Bridge. 

Using a mix of Federal Surface Transportation 

Program and local funds, NYCDOT secured 

funding for the installation of the single load 

cell WIM sensor in 2014. State DOT installed 

gantries, cameras, and license plate readers 

to capture license plate and USDOT numbers. 

In 2016, NYCDOT installed two more WIM 

sites in Queens to collect and analyze truck 

weight data for planning applications. Future 

WIM sites are envisioned along the truck route 

network at cordon points near borders with 

neighboring jurisdictions. Through multi-agency 

collaboration platforms, such as the Goods 

Movement Action Program, NYCDOT hopes 

to leverage an array of funding sources and 

to develop and/or support competitive grant 

applications that demonstrate multi-agency 

support and cooperation. 

Local Contact 

Diniece Peters, Office of Freight Mobility, 

NYCDOT, (212) 442-7199, dpeters@dot.nyc.gov 

40 
TECHNOLOGY STRATEGIES 

Ohio’s Diesel Emissions Reduction Grant Program

Primary Objective 

In the State of Ohio, 38 of 88 counties are 

currently or have previously been designated 

as nonattainment or maintenance areas for the 

air pollutants ozone or PM2.5. These counties 

include the cities of Columbus, Cleveland, 

and Cincinnati. The State of Ohio administers 

a statewide grant program to help reduce 

emissions of air pollutants from mobile sources 

in these counties. This program, known as 

the Diesel Emissions Reduction Grant (DERG) 

program, provides funding to replace, repower, 

or retrofit older diesel-powered vehicles and 

vessels, including freight vehicles. It also 

helps pay for the installation of idle-reduction 

equipment. 

Since its inception in 2008, the DERG program 

has awarded more than $47.2 million for cleandiesel projects and leveraged another $20.4 

million in local matching funds. Another $8.8 

million of project selections are currently under 

development. With annual funding of about $10 

million, the DERG program is one of the largest 

statewide clean-diesel programs funded by the 

Federal Congestion Mitigation and Air Quality 

Improvement (CMAQ) program. 

Implementation Approach 

The Federal CMAQ program is a flexible 

funding source for transportation projects and 

programs that help improve air quality and 

reduce congestion. Since 2008, the State of Ohio 

has dedicated a significant portion of its CMAQ 

funding to its DERG program. Eligible fleets 

include on-road vehicles and some construction 

vehicles, as well as certain locomotives and 

marine vessels. Other eligible vehicle types 

include school and transit buses. 

Key Accomplishments 

• Since its inception in 2008, the DERG

program awarded more than $47.2

million for clean-diesel projects and

leveraged another $20.4 million in

matching funds.

• The DERG program estimates that

the 40 projects funded in State fiscal

year 2016 will reduce air emissions by

148 tons of NOx and 6 tons of PM2.5 

annually.

Participating fleets can be either publicly or 

privately owned, but, in keeping with Federal 

CMAQ regulations, private-sector applicants 

must have a public agency sponsor. Of the 

$12.8 million awarded in 2016, $3.4 million (27 

percent) went to private fleet owners. Project 

selections included the replacement of 73 

diesel-powered trucks and the repowering of 

two tugboats operating on the Ohio River. The 

largest award, at nearly $1 million, went to a 

Class I railroad for equipment to reduce engine 

idling by 35 locomotives operating at five rail 

yards in the Cleveland, Columbus, and Toledo 

areas. 

Funding recipients must provide at least a 

20-percent funding match and must use

technology that has been verified to reduce

emissions. In addition, the fleet owner must

operate the equipment purchased or modified

with DERG funding at least 65 percent of the

time within Ohio’s CMAQ-eligible counties.

Recipients must also adhere to other Federal

requirements for recipients of CMAQ funds,

including following public procurement

processes.

EMISSIONS REDUCTION STRATEGIES

41 
 

EMISSIONS REDUCTION STRATEGIES

The DERG program provided funding to repower this switching locomotive, which operates near Cincinnati, OH. The 

locomotive’s existing single diesel engine was replaced with three generator-set diesel engines, each of which runs 

only when its power is needed. Source: Ohio Rail Development Commission.

Ohio’s DERG program has benefited from 

effective interagency collaboration. The Ohio 

Environmental Protection Agency (Ohio EPA) 

is the lead agency, but the Ohio Department 

of Transportation (Ohio DOT) is the formal 

conduit for the CMAQ funds and is extensively 

involved in the program’s operation. The two 

agencies have worked out complementary roles 

that make the most of their respective areas of 

expertise. The Ohio EPA conducts outreach for 

the program and assists applicants in preparing 

their proposals. Ohio EPA also coordinates the 

activities of the DERG program with other cleandiesel programs that it administers. Ohio DOT 

helps funding recipients understand and comply 

with the requirements for the proper use of 

CMAQ funds. 

A committee with staff from both agencies 

reviews and scores grant applications. The 

primary criterion for project selection is the 

cost-effectiveness of the projected reductions 

in emissions of PM2.5 and nitrogen oxides 

(NOx), a precursor to ground-level ozone. 

However, the geographic and transportation 

modal distribution of awards is also a factor 

in the project selection process. As a further 

demonstration of Ohio interagency cooperation, 

two additional State entities, the Ohio Rail 

Development Commission and the Ohio Air 

Quality Development Authority, serve as public 

agency sponsors for many of the private-sector 

entities that receive DERG funding. The Ohio 

Division Office of the FHWA provides ongoing 

assistance in determining project eligibility, as 

well as in processing Buy America waivers and 

sole-source procurement requests. 

Recent program improvements include the 

use of an online, interactive application form 

beginning with the 2016 grant cycle. According 

to Ohio DOT staff, the online version has been 

well received and has made the review of 

applications much easier. 

Local Contacts

Dave Moore, Ohio DOT, Statewide Planning 

Manager, (614) 466-0754, dave.moore1@dot. 

ohio.gov 

Carolyn Watkins, Ohio EPA, Chief, Office of 

Environmental Education, (614) 644-3768, 

carolyn.watkins@epa.ohio.gov 

42 
 

Clean Trucks Program at Ports of Los Angeles and 

Long Beach 

Primary Objective Key Accomplishments 

In the early 2000s, container trade at the Port 

of Los Angeles (POLA) and Port of Long Beach 

(POLB) was growing rapidly. Between 2000 and 

2007, the number of containers handled by 

POLB increased by 59 percent, and the number 

of containers handled by POLA increased by 

71 percent. This significant growth in activity 

meant more truck activity in the neighborhoods 

surrounding the ports, which greatly concerned 

residents. At the time, the drayage trucks serving 

the ports were more likely to be older, higheremissions vehicles than in other sectors of the 

trucking industry. In response to concerns about 

truck traffic and pollution, the ports looked for 

ways to mitigate the negative impacts of its 

operations on the surrounding community. To 

reduce air emissions from the drayage fleet, the 

ports jointly implemented a Clean Truck Program 

as part of the Clean Air Action Plan. The program 

prohibits trucks with older and more polluting 

engines from accessing the Ports. However, 

the program offers financial assistance in the 

replacement or repowering of older trucks. 

The objectives of the Clean Trucks Program are 

to:

• Rapidly advance the improvement of air

quality at the Port.

• Establish performance criteria for providers

of drayage services that promote the Port’s

business objectives.

• Ensure sufficient supply of drayage services

and drivers that promote the Port’s business

objectives.

• Enhance Port security and safety.

• Reduce negative impacts that port drayage

inflicts on the local community.

• As of January 2012, 100 percent of the 

cargo moved at port terminals is by 

trucks meeting the 2007 Federal Clean 

Truck Emissions Standards. This

achievement allowed the Ports to meet

their 2012 goal to reduce emissions

from overall drayage operations by 80

percent.

• When the program was fully

implemented in 2012, the Clean Trucks

Program reduced the rate of truck

emissions at the POLA by more than 80

percent, and at the POLB by more than

90 percent.

• As part of the latest update to their

Clean Air Action Plan, the two ports are

proposing to update the Clean Trucks

Program to phase out older trucks and

transition to zero-emissions trucks by

2035. 

In its first year at the POLA, the program 

reduced the rate of truck emissions at the 

port by an estimated 70 percent. When the 

program was fully implemented in 2012, port 

truck emissions were reduced by more than 

80 percent. At the POLB, port truck emissions 

decreased by more than 90 percent when the 

Clean Trucks Program was fully implemented 

in 2012. As of June 2017, the number of trucks 

in the Port Drayage Truck Registry that have 

access to the Port of Los Angeles or Long Beach 

terminals is over 17,000, the majority of which 

are independent truck owner-operators. 

CLEAN TRUCK PROGRAMS - PORTS

43 
 

CLEAN TRUCK PROGRAMS - PORTS

Implementation Approach 

In developing the Clean Air Action Plan, the 

ports organized a stakeholder committee that 

included representatives from environmental 

groups, public agencies, the maritime industry, 

and cargo owners. The ports held dozens of 

outreach meetings with trucking companies 

to discuss topics of concern to truck owneroperators. To track compliant trucks, the ports 

developed the Drayage Truck Registry, which 

functions as a shared data system for both 

ports. In addition to tracking truck movements 

in real-time at both ports, the Registry allows 

drivers to register trucks and pay access fees 

online by credit card or check. 

Although the Clean Truck Programs at both 

ports have the same goals and objectives, the 

POLA implemented a concession program, while 

the POLB implemented a registration program. 

The POLA’s concession program requires 

drivers to enter into a 5-year contract with the 

Port, register in the Port Drayage Truck Registry, 

and maintain certain insurance and safety 

standards. The POLA program only requires 

drivers to enter the registry, which includes a 

$250 registration fee and an annual fee of $100 

per truck per port. Motor carriers must also 

acquire a radio frequency identification (RFID) 

tag to access each Port’s terminals. For trucks 

that are not included in the registry, day passes 

can be purchased for $30 per day.

Under the Clean Truck Program, terminals at 

the Ports of Los Angeles and Long Beach issued 

incremental bans on older truck models. The 

first ban in October 2008 included all pre-1989 

truck models. In January 2010, the Ports banned 

trucks manufactured between 1989 and 1993. 

During this time, trucks manufactured between 

1994 and 2003 were allowed to continue doing 

business at the ports if they were equipped 

with exhaust filters that significantly cut their 

emissions. In January 2012, the program 

banned all trucks that did not meet the 2007 

Federal Clean Truck Emissions Standards. 

The Clean Truck Program was highly successful 

in helping the Ports of Los Angeles and Long 

Beach meet their emissions-reductions goals. 

However, a program this complex may not be 

required at all U.S. ports. Lower-volume ports 

may be able to manage a similar program 

through a simpler approach, such as a vehicle 

information number (VIN) check or license plate 

database. Ultimately, it is important for ports 

interested in implementing a Clean Truck 

Program to develop a cost-effective data system 

that best meets their goals. 

The ports helped finance clean vehicles for 

some truck drivers. The POLA provided $44 

million in payments to licensed motor carriers 

to incentivize their purchase of 2,200 cleaner 

truck models in 2008. The POLB helped finance 

750 clean trucks, 700 of which were liquefied 

natural gas (LNG)-powered vehicles. 

The two ports are currently working on an 

update to their Clean Air Action Plan, which is 

expected to be finalized by the end of 2017. 

The 2017 update contains 14 strategies to 

reduce emissions, invest in zero-emissions 

infrastructure, encourage freight efficiency, 

and address energy resources. The ports are 

proposing to update the Clean Trucks Program 

to phase out older trucks and transition to zeroemissions trucks by 2035. 

Local Contacts

Tim DeMoss, Air Quality Supervisor, Port of Los 

Angeles, (310) 221-4782, TDeMoss@portla.org 

Tom Becker, Intermodal Operations, Port of 

Long Beach, (562) 283-7775, Tom.Becker@ 

polb.com 

44 
 

The European Commission’s Freight Electric Vehicles 

in Urban Europe (FREVUE) Project

Primary Objective 

European governments at all levels have set 

ambitious targets for reducing emissions of air 

pollutants and carbon dioxide from vehicles in 

cities. The use of all-electric vehicles for freight 

and passenger transport is widely recognized 

as a primary strategy for eliminating tailpipe 

emissions. The European Commission funded 

the Freight Electric Vehicles in Urban Europe 

(FREVUE) project to test the suitability of the 

newest generation of electric vehicles for lastmile deliveries in urban areas. The FREVUE 

project, which ran from 2013 to 2017, exposed 

more than 80 all-electric freight vehicles to 

the day-to-day rigors of the urban logistics 

environment. 

Implementation Approach 

The FREVUE project was conducted by a team of 

17 industry partners, nine public-sector bodies, 

and six research organizations. The project 

deployed all-electric vehicles in eight major 

European cities: Amsterdam, Lisbon, London, 

Madrid, Milan, Oslo, Rotterdam, and Stockholm. 

Each of the FREVUE demonstrations varied in 

the types of vehicles they deployed, the types 

An Emoss 20-ton (18.5-tonne) all-electric truck deployed 

for the FREVUE pilot in Rotterdam, Netherlands. 

Source: FREVUE.

Key Accomplishments 

• The project deployed 80 all-electric

vehicles in real-world urban logistics

operations and collected data from

470,000 miles (757,000 km) of driving.

• The project showed that all-electric

freight vehicles are well-suited to innercity freight operations and that the

range of vehicles currently available

on the market is sufficient for most

operations.

• Most industry partners have, based

on their FREVUE experience, moved

forward and procured more all-electric

vehicles on their own or with the help

of other funding sources.

of goods that were delivered, and the logistics 

models that were tested. The project had three 

main phases:

1. Assessment and Information and

Communications Technology (ICT)

Framework: The researchers developed

data protocols, data handling procedures,

and an assessment framework for the eight

demonstrations.

2. Demonstrations: The FREVUE team

deployed the electric freight vehicles,

charging infrastructure, and ICT

management systems at the eight project

sites.

3. Analysis: The researchers evaluated

the data from the demonstrations

and developed guidelines and

recommendations for the different key

VEHICLE ENVIRONMENTAL PERFORMANCE

45 
 

VEHICLE ENVIRONMENTAL PERFORMANCE

stakeholders in urban logistics. The 

analyses included:

• Assessment of the technical suitability of

the vehicles for urban logistics.

• Economic analysis of the total cost of

ownership of the different vehicle types

compared to conventionally fueled

vehicles.

• Impact of a range of policies on the

economic case for the logistics operators

to deploy all-electric vehicles.

• Environmental analysis of emissions

reductions achieved and analysis of

the potential impacts of wider-scale

deployment on air quality, congestion,

and the electricity grid.

• Attitudinal survey of the different

stakeholders involved in the

demonstrations.

The economic analysis showed that for small 

electric freight vehicles (≤3.9 tons) that are 

driven at least 37 miles (60 km) a day, the 

total cost of ownership comparison can be 

favorable within about five years. For mediumsized vehicles (between 3.9 and 8.3 tons), it 

is more challenging but still possible to find a 

positive business case. For the largest vehicles 

(>8.3 tons), the analysis did not find a positive 

business case for all-electric technology, even 

with currently available subsidies and a long 

depreciation period. 

However, the economic analysis noted that the 

business case can be affected by public policies 

such as exemption from congestion charges, 

a fee charged in some European cities for 

entering the city center during peak hours. The 

analysis also looked at how future reductions in 

the cost of batteries would affect the business 

case. The difference between the cost of 

electricity and diesel (or gasoline) is also a key 

Renault Kangoo ZE and ZE Maxi all-electric vans 

deployed by the Portuguese national postal service for 

the FREVUE pilot in Lisbon, Portugal. Source: FREVUE.

driver in the total cost of ownership. 

The environmental analysis estimated that the 

FREVUE project led to reductions of nitrogen 

oxide emissions of up to 4,400 lbs. (2,000 kg) 

and reductions in particulate matter savings 

of more than 150 lbs. (70 kg). The analysis 

estimated the reduction in total environmental 

greenhouse gas emissions of 190 to 210 tons 

of carbon dioxide equivalent. This equates to 

a 45-percent savings by switching to electricity 

from diesel or gasoline, but the savings from 

each demonstration site varied considerably 

based on the local mix of electricity sources. 

For other agencies planning a similar 

demonstration project, FREVUE project 

managers recommend that extra attention 

be paid to the process of monitoring vehicle 

performance and collecting vehicle data. 

FREVUE researchers received vehicle data 

from different types of monitoring devices, 

and the data files did not always use the same 

parameters. This made it more difficult to make 

comparisons across vehicles. 

Local Contact

Tanja Dalle-Muenchmeyer, FREVUE Coordinator, 

Cross River Partnership / Westminster City 

Council 

tdmuenchmeyer@westminster.gov.uk 

46 
 

Demonstration of Zero-Emission Delivery Vehicles in 

the Houston-Galveston Area

Primary Objective 

The Houston-Galveston Area Council (H-GAC) is 

partnering with the parcel carrier UPS to acquire 

and test the performance of 18 all-electric 

delivery vehicles in real-world operations. This 

is just one of many initiatives by H-GAC, the 

region’s MPO, to improve air quality in the 

greater Houston region. A Federal Department of 

Energy (DOE) was provided to reduce emissions, 

and to provide detailed information about the 

market viability of all-electric delivery vehicles 

and the emissions benefits from using them.

Implementation Approach 

Eight counties in the Houston-Galveston area 

of Texas are designated as a nonattainment 

area for ground-level ozone, an air pollutant 

that can trigger a variety of health problems. 

Conventionally fueled motor vehicles, including 

freight delivery vehicles, are significant sources 

of NOx and volatile organic compounds, which 

are precursors to ground-level ozone. Therefore, 

these vehicles are an important focus of efforts 

to reduce ozone concentrations. 

H-GAC has had a long history of working

to replace older diesel vehicles with either

alternative-fuel vehicles or with newer,

conventionally fueled vehicles that produce

lower emissions. Therefore, it was not surprising

for the agency to apply for a DOE grant that

offered Federal resources to promote zeroemission cargo transport in areas of severe

air quality nonattainment and severe traffic

congestion. H-GAC saw the grant as an

opportunity to demonstrate to local stakeholders

and others that all-electric delivery vehicles can

Key Accomplishments 

• The project team completed the

manufacture and deployment of 18 allelectric delivery vehicles in November

2016.

• Through June 2017, the test vehicles

had driven nearly 70,000 miles,

reducing diesel consumption by almost

12,500 gallons.

• Estimated reductions in NOx emissions

over the same time period totaled

about 94 pounds, and reductions in

carbon dioxide emissions came to

nearly 280,000 pounds.

operate successfully in the Houston-Galveston 

region and are a viable solution for owners 

of freight delivery fleets that wish to reduce 

emissions. 

H-GAC was awarded a $2 million DOE grant

in 2012. In the spring of 2014, H-GAC issued

a call for projects inviting applications from

fleet or vehicle operators in the Houston

region. Respondents were required to submit

a response in partnership with a certified

original equipment manufacturer or supplier

of all-electric delivery vehicles. Later in 2014,

H-GAC selected the application from UPS, which

proposed to acquire and deploy 18 all-electric

step vans built by Workhorse Group (known at

the time as AMP Electric Vehicles). The vehicles

were designed for local parcel delivery in highdensity, urban settings. The fully electric trucks

operate with electric motors and rechargeable

batteries that provide a range of up to 70 miles

per day.

ELECTRIC VEHICLES

47 
 

ELECTRIC VEHICLES

The first of the demonstration vehicles reached 

UPS in the fall of 2015. As they were delivered, 

UPS put the vehicles into operation at three 

different distribution centers. The last of the 

vehicles was placed into operations by UPS in 

November 2016. Presently, the project is in the 

middle of a two-year performance monitoring 

period that will end in late 2018. H-GAC, UPS, 

and Workhorse Group are working through 

technical issues to ensure that the vehicles 

remain operational and are utilized by UPS to 

the greatest extent possible. H-GAC and UPS are 

also currently working to improve the transfer 

of operational and utilization data about the 

vehicles to the MPO.

Through June 2017, the demonstration vehicles 

had driven nearly 70,000 miles, reducing diesel 

consumption by almost 12,500 gallons. NOx 

reductions over the same time period totaled 

about 94 pounds, and reductions in carbon 

dioxide emissions came to nearly 280,000 

pounds. 

H-GAC and its partners have overcome several

challenges to get the project to its present

state. The first challenge for H-GAC was that

the vehicle manufacturer with which they

had applied for the DOE grant was no longer

in business by the time the grant award was

announced. Therefore, H-GAC had to work with

DOE to restructure the grant agreement. The

agreement was modified to allow participating

fleet owners to partner with an OEM or vehicle

supplier of their own choosing.

H-GAC also faced challenges in recruiting

additional fleets to participate in the

demonstration. The MPO continued to recruit

fleets to deploy another 12 all-electric vehicles,

but it was ultimately unable to sign on any other

fleets with the right operating characteristics.

According to H-GAC staff, other delivery fleets

expressed interest in participating in the 

project, but their routes were either too long or 

otherwise unsuited to the current capabilities 

of all-electric vehicles. Recruitment was also 

hindered by “range anxiety,” the concern 

that an all-electric vehicle’s batteries will be 

depleted before the vehicle can return to its 

base of operations. Some potential participants 

proposed using vehicles with “range extenders,” 

which are small gasoline engines that can 

recharge the vehicle’s battery when necessary. 

However, this option was deemed inconsistent 

with the “zero-emission” aspect of the DOE 

grant. 

Initially, identifying matching funds for the 

Federal grant was also a challenge. H-GAC had 

hoped to use funds from a State air quality 

program known as the Texas Emissions 

Reduction Plan. However, the MPO determined 

that it would not be possible to use both Texas 

Emissions Reduction Plan funding and the 

DOE grant for the project. UPS is providing the 

required matching funds. 

For other agencies engaging in demonstrations 

of new vehicle technologies, H-GAC staff 

recommend including a driver education 

component to make sure the vehicles are 

used correctly. In addition, they suggest that 

it is important for vehicle makers to have 

ready access to replacement parts so that 

demonstration vehicles are not sidelined for 

long periods of time. 

Local Contacts

Shelley Whitworth, Air Quality Program 

Manager, H-GAC, 713-627-3200, 

Shelley.Whitworth@h-gac.com 

Andrew DeCandis, Senior Planner, H-GAC, 713-

627-3200, Andrew.DeCandis@h-gac.com

48 
 

Transport for London Reducing Truck Blind Spots 

through Vehicle Redesigns 

Primary Objective 

In 2015, London began enforcing regulations 

that prohibit lorries (i.e., trucks and other 

heavy goods vehicles) that lack certain safety 

equipment from driving on London’s roads. 

The regulations are particularly geared towards 

construction vehicles, which have been involved 

in a disproportionate number of fatal collisions 

involving cyclists and pedestrians. According 

to TfL, heavy goods vehicles accounted for 

less than 4 percent of the total miles driven in 

London, but they were involved in 78 percent 

of cyclist fatalities and 20 percent of pedestrian 

fatalities in 2015. The Safer Lorry Scheme, as the 

regulatory program is called, is one component 

of a wider set of initiatives to reduce the 

number of people killed or seriously injured on 

London’s roads. 

Implementation Approach 

Development and implementation of the 

Safer Lorry Scheme was led by Transport for 

London (TfL), which is an integrated transport 

authority that manages most of London’s main 

roads and public transport network. At the 

request of London’s mayor, TfL conducted a 

feasibility study to consider various ways of 

improving truck safety in London. The study 

confirmed that certain heavy goods vehicles 

were permitted to operate without certain 

safety equipment such as side guards and some 

types of mirrors. The study concluded that such 

equipment would have made a substantial 

difference in the outcomes of recent collisions 

between cyclists and trucks. The study found 

that construction vehicles were particularly 

dangerous, because although they are designed 

Key Accomplishments 

• Since the launch of the Safer Lorry

Scheme in 2015, the compliance rates of 

trucks operating in greater London is

approximately 98 percent.

• The number of serious injuries (for

all road users) involving heavy goods

vehicles in greater London decreased by 

17 percent from 2015 to 2016.

• TfL leveraged the relationships fostered

from the Freight Forum, a pre-existing

freight stakeholder body, to highlight

safety concerns with heavy goods

vehicles and build consensus for the

Safer Lorry Scheme. 

for heavy-duty functioning on work sites and 

not on-the-road driving, in reality they spend 

more than 90 percent of the time on the road 

with other road users. 

These findings led TfL to proceed with 

implementing the Safer Lorry Scheme. It took 

approximately 18 months from the conclusion 

of the feasibility study in 2014 until regulations 

went into effect in September 2015. The scheme 

operates across London, 24 hours a day, 

seven days a week, covering most of greater 

London. The area covered by the Safer Lorry 

Scheme is the same as for the city’s pre-existing 

Low Emission Zone. Owners of vehicles over 

3.5 metric tons that are currently exempt 

from national requirements for basic safety 

equipment are now required to:

TRUCK DESIGN

49 
 

TRUCK DESIGN

Signs like this one mark the boundary of London’s Safer 

Heavy Goods Vehicle (HGV) Zone. Source: TfL.

• Install Class V and Class VI mirrors to give

the driver a better view of cyclists and

pedestrians around their vehicles.

• Install side guards to protect cyclists from

being caught under the wheels in the event of

a collision.

To build consensus and ensure program 

success, TfL worked with a variety of stakeholder 

groups through its Freight Forum, a stakeholder 

group that was established during the 2012 

Olympics to ensure continuity of freight 

operations during the games. The Forum 

is made up of the London boroughs (which 

manage the majority of roads in London), 

London Councils, truck operators, rail freight 

groups, and other industry stakeholders. The 

Safer Lorry Scheme was also the subject of a full 

public, statutory consultation. 

Enforcement is an important component of 

the Safer Lorry Scheme’s success. The scheme 

is enforced by the Metropolitan Police Service, 

City of London Police, and the Driver and 

Vehicle Standards Agency. Drivers found to 

be operating a non-compliant vehicle may 

be issued a fine of £50 (about $66), and the 

offense also carries a potential fine of £1,000 

(about $1,300) at Magistrate’s court. The Traffic 

Commissioner, who has the power to modify 

or suspend operator licenses, is also notified of 

companies operating vehicles in breach of the 

scheme. 

The success of the Safer Lorry Scheme has 

prompted TfL to engage in other efforts to 

reduce road dangers for vulnerable road users 

(i.e., pedestrians, cyclists, and motorcyclists). 

For example, TfL is working with vehicle 

manufacturers, fleet operators, and others 

to change the overall designs of heavy goods 

vehicles to increase drivers’ direct vision. 

According to Tfl, its research shows that drivers 

react more quickly when they can see cyclists 

and pedestrians directly rather than by use of 

mirrors or other equipment. The agency has 

also developed a Direct Vision Standard, which 

is a star rating system for heavy goods vehicles 

based on how much a driver can see of the area 

of greatest risk to vulnerable road users. TfL is 

also continuing to work with the construction 

industry to encourage behavior changes that 

reduce the road dangers associated with 

construction logistics. 

Local Contact

Tim Ward, Freight and Fleet Communications 

and Engagement Manager, Transport for 

London, +44 020 3054 7209, 

timward@tfl.gov.uk

50 
5. Planning and

Funding OLT

Strategies

Implementing OLT strategies in urban areas 

involves two key actions: planning for and 

documenting the problem, and securing 

funding to solve it. Documents produced as part 

of the broader transportation planning process 

– Long-Range Statewide Transportation Plan

and the Metropolitan Transportation Plan - may

have sections dedicated to freight concerns.

State Freight Plans and Regional or City Freight

Plans can assess urban freight mobility needs, 

and define freight planning activities and 

investments to address those needs. These 

plans can help identify OLT strategies that 

may be eligible for funding through Federal 

formula and grant programs. Figure 2 illustrates 

how planning for, documenting, and securing 

funding for OLT strategies is embedded in the 

existing transportation planning process. 

Figure 2. Integrating Freight into the Transportation Planning Process 

51 
is required by the Fixing America’s Surface 

Transportation (FAST) Act to develop a State 

freight plan, which must comprehensively 

address the State’s freight planning activities 

and investments (both immediate and longrange). A State may develop its freight plan 

either separately from, or incorporated within, 

its statewide strategic long-range transportation 

plan. Among other requirements, a State freight 

plan must:

• Cover a five-year forecast period.

• Include a “freight investment plan” with

a list of priority projects and be fiscally

constrained.

• Describe how the State will invest and match

its NHFP funds.

The State must update its freight plan at least 

every five years, and may update its freight 

investment plan more frequently than the 

overall freight plan. 

The FAST Act requires the U.S. DOT to 

encourage each State to establish a freight 

advisory committee consisting of a 

representative cross-section of public and 

private freight stakeholders. The role of a State 

freight advisory committee is to:

Planning for Freight 

Projects 

The transportation planning process led by 

State DOTs and MPOs provides an opportunity 

for funding and coordinating OLT strategies. 

State DOTs and MPOs can use planning funds 

for freight planning, and can dedicate funds 

for implementation of freight projects. This 

section highlights components of established 

transportation planning and programming 

processes that can be used to further freight 

and goods movement mobility in urban areas. 

Transportation planning is a cooperative 

process designed to foster involvement by 

all users of the system, such as the business 

community, community groups, environmental 

organizations, the traveling public, freight 

operators, and the general public, through a 

proactive public participation process. State 

DOTs and MPOs are responsible for making 

sure that freight movement is considered in the 

transportation planning process. 

Key components of the transportation planning 

process for freight stakeholders are described 

in Table 3 on the next page. 

State or Regional Freight Plans are designed 

to help address planning activities and 

investments, both immediate and long-term. 

Within a statewide or metropolitan freight plan, 

State and MPOs can identify OLT needs and use 

this process to document specific opportunities 

for funding and implementation of OLT 

strategies. 

The National Highway Freight Program (NHFP) 

is a formula grant program that distributes $6.3 

billion in formula funding to States over five 

years from fiscal year (FY) 2016 to FY 2020. To 

obligate funding under the NHFP, each State 

• Advise the State on freight-related priorities,

issues, projects, and funding needs.

• Serve as a forum for discussion for State

transportation decisions affecting freight

mobility.

• Communicate and coordinate regional

priorities with other organizations.

• Promote the sharing of information between

the private and public sectors on freight

issues.

• Participate in the development of the freight

plan of the State.

52 
Management 

Process (CMP) 

population 

>$200K 

update

range

Transportation 

Systems

Management 

MPO (not 

required as 

stand-alone 

No Fed

requir

Table 3. Freight Opportunities in the Transportation Planning Processes 

Planning Product Who Develops? Time Horizon 

Long-Range State DOT 20+ years 

Statewide 

Transportation 

Plan 

State DOT 5 years State Freight 

Plan 

Freight-Related Content 

The State’s long-range planning process must address 

several freight-related factors, such as economic vitality, 

accessibility and mobility of freight, system preservation, 

and intermodal connectivity. Plans must set targets for 

Federal freight performance measures and report on 

progress made with respect to performance targets. The 

long-range plan may incorporate State freight plan. 

Identification of significant freight system trends, needs, 

and issues in the State; an inventory of facilities with 

freight mobility issues; freight investment plan with a list 

of priority projects; description of how the State will invest 

and match Federal NHFP funds. Typically informed by freight 

advisory committee. 

State Identifies statewide priorities for transportation projects State DOT 4 years 

Transportation throughout the State. Lists projects to be funded with

Improvement Federal transportation funds or needing certain Federal

Program (STIP) approvals.

Long-Range MPO 20+ years Metropolitan 

Transportation 

Plan 

Includes long-range and short-range program strategies 

and action that lead to the development of an integrated 

intermodal system in a region. Addresses a range of issues 

relevant to freight mobility including: economic vitality, 

accessibility and mobility of people and freight, system 

preservation, and intermodal connectivity. Sets targets 

for Federal freight performance measures and report on 

progress made with respect to performance targets. 

Regional or City 

Freight Plan 

MPO 

(regional) 

or city DOT 

(city) 

No Federal 

requirement 

Varies by plan, but usually includes: an inventory of freight 

facilities; data on historical freight activity; forecast of 

future freight activity; and identification of needed freight 

investments, policies, and strategies. Typically informed by 

freight advisory committee. 

Transportation 

Improvement

Program (TIP) 

MPO 4 years Identifies transportation projects and strategies the MPO 

plans to undertake over the next four years. Project 

receiving Federal funding must be in the TIP. 

Unified Planning

Work Program 

(UPWP) 

FHWA/FTA/ 

MPO 

1 or 2 years Lists transportation studies and tasks to be completed by 

MPO staff or a member agency, including freight planning 

studies or plans for collection and analysis of freight data. 

Congestion MPOs with Be consistent with 

 cycle for longplan & TIP. 

Determines causes of congestion and identifies operational 

and trip-reduction strategies for managing congestion. 

These actions and strategies can be freight-specific.

& Operations 

(TSMO) Plan 

plan) 

eral 

ement 

Operations objectives, performance measures, operations 

strategies, and potential projects or programs. Can be used 

to identify operations goals and strategies that benefit 

freight mobility. 

53 
Federal statute requires each MPO to develop 

a Transportation Improvement Program 

(TIP), which is a fiscally constrained list of 

upcoming transportation projects covering 

a period of at least four years. In the TIP, an 

MPO could identify infrastructure maintenance 

or rehabilitation projects that might involve 

OLT strategies before, during, or after 

project implementation. Similarly, States are 

required to develop a State Transportation 

Improvement Program (STIP), which is 

designed to leverage MPOs and other local 

entities to develop a statewide project list 

covering a four-year period. States could use 

STIPs to identify and fund large-scale OLT 

initiatives that could benefit urban freight 

movement at the State level. 

The Unified Planning Work Program (UPWP)

identifies planning priorities and activities for 

metropolitan planning areas over a one- to 

two-year period. The UPWP typically identifies 

planning data collection and analysis tasks, 

public outreach activities, and planning studies 

to be conducted. MPOs could use a UPWP 

to help set the stage for implementing OLT 

strategies by including the following:

• A description of overall goals or objectives

for the freight system, which provide context

for later decision-making on freight strategy

implementation, including OLT strategies.

• A description of needs for OLT strategies at a

high level.

• An overview or update of initiatives,

programs, or projects that involve OLT

strategy implementation.

• Identification of action steps that might lead

to further study of, recommendations for, or

application of OLT strategies. 

A Congestion Management Process (CMP) 

is an approach for managing congestion 

at a regional or MPO level. The CMP uses 

a number of analytic tools to define and 

identify congestion within a region, corridor, 

and activity center or project area, and to 

develop and select appropriate strategies to 

reduce congestion or mitigate the impacts of 

congestion. A CMP is required in metropolitan 

areas with population exceeding 200,000, 

known as transportation management areas 

(TMAs). MPOs may use a CMP to:

• Collect, analyze, and report on data related

to urban freight mobility that provide

a foundation for future OLT strategy

decision-making.

• Identify and describe urban freight projects 

that involve OLT strategies after

implementation.

• Foster partnerships with key urban freight

stakeholders involved in OLT strategy

decision-making and implementation. 

A Transportation Systems Management and 

Operations (TSMO) Plan is often used as an 

addendum or complement to the metropolitan 

transportation plan and provides input on 

operations goals, objectives, performance 

measures, strategies, and projects or programs. 

The projects identified in a TSMO plan can be 

applied to freight at the regional, corridor, and/

or project level. In developing a TSMO plan, 

management and operations stakeholders and 

planners work together to define a common 

vision, develop operations objectives, and 

identify performance measures. Participants 

also develop strategies and potential projects or 

programs to reach those objectives, then seek 

out resources by working within the region’s 

planning and programming processes. 

54 
Federal Funding 

Opportunities for Freight

Funding for OLT strategies can come from a 

number of sources, including Federal and State 

governments, special authorities, public or 

private tolls, local assessment districts, local 

property and sales taxes, and fee-based funding 

sources such as revenues from loading zone 

meters, truck tickets, and oversize/overweight 

permitting. Federal-aid transportation programs 

are typically the primary public funding source 

for capital investment projects. Most Federal-aid 

highway funding programs are administered 

by State DOTs and MPOs, who allocate money 

based on State, regional, and local priorities. 

As such, a strong working relationship between 

State DOTs, MPOs, and localities is critical to 

ensure that adequate funding is allocated 

towards implementing OLT strategies in urban 

areas. 

There are several notable Federal funding 

programs available that can provide States 

and MPOs funding that agencies can use to 

implement OLT strategies:

• The Surface Transportation Block Grant

(STBG) Program is one of the most flexible

funding sources among all Federal-aid

highway programs, promoting flexibility in

State and local transportation decisions to

best address State and local transportation

needs, including freight and goods movement

needs. Eligible projects include a wide range

of surface transportation planning, design,

and construction actions.

• National Highway Freight Program (NHFP)

funds can be used for a variety of traditional

infrastructure and OLT strategies, including

intelligent transportation systems (ITS),

real-time traffic, truck parking, roadway

condition, and multimodal transportation

information systems, electronic screening

and credentialing systems for vehicles, and 

diesel retrofit or alternative fuel projects for 

Class 8 vehicles (e.g., tractor-trailers). The 

NHFP has multimodal eligibility. 

• Competitive grant programs represent

another potential funding source for

implementing OLT projects. These include

competitive Federal grant programs

such as the NSFHP program (currently

being administered as INFRA grants) and

Transportation Investment Generating

Economic Recovery (TIGER) grants. These

types of programs can provide financial

assistance to both large- and small-scale

freight and highway projects. Florida DOT

received an $11 million grant to deploy a

truck parking availability system to provide

information to truck drivers on the availability

of parking spaces at facilities along Florida’s

primary interstate corridors.

• The Congestion Mitigation and Air Quality

(CMAQ) Program provides funding for

transportation projects and programs that

reduce congestion and improve air quality

for areas that do not meet the National

Ambient Air Quality Standards for ozone,

carbon monoxide, or particulate matter,

known as nonattainment areas, and for

former nonattainment areas that are now in

compliance, known as maintenance areas.

Although project eligibilities remain largely

the same as before the FAST Act was enacted,

the new law places increased emphasis on

diesel engine retrofits, port-related landside

equipment, and alternative fuel infrastructure.

• The National Clean Diesel Campaign of

U.S. EPA offers grants, rebates, and other

types of support for projects that protect

human health and improve air quality by

reducing emissions from diesel engines.

Grant funds may be used for clean diesel

projects that support OLT strategies, including

EPA-verified technologies or certified

55 
56

Funding Source Eligible Freight Uses

Surface Transportation Broad range of surface transportation capital needs, including several freightBlock Grant (STBG) related uses such as truck parking facilities, border infrastructure, and 

Program infrastructure modifications to facilitate direct intermodal interchange, transfer, 

and access into and out of a port terminal.

National Highway Freight Eligible activities include construction, operational improvements, freight planning, 

Program (NHFP) and performance measurement. NHFP funds must contribute to the efficient 

movement of freight on the National Highway Freight Network and be identified 

in a freight investment plan included in a State’s freight plan. Up to 10 percent of 

a State’s NHFP funds may be used for public or private freight rail, water facilities 

(including ports), and intermodal facilities.

Congestion Mitigation Transportation projects and programs that reduce congestion and improve air 

and Air Quality quality or areas that do not meet the National Ambient Air Quality Standards for 

Improvement (CMAQ) ozone, carbon monoxide, or particulate matter (nonattainment areas) and for 

former nonattainment areas that are now in compliance (maintenance areas). 

Freight-related project types include diesel retrofits, idle-reduction equipment, and 

conversions of fleets to alternative fuels.

U.S. DOT Competitive Eligibility varies by program, but freight-focused projects typically compete for 

Grant funding with non-freight projects. Multimodal freight projects may be prioritized. 

Examples include: Infrastructure For Rebuilding America (INFRA) and Transportation 

Investment Generating Economic Recovery (TIGER).

U.S. EPA National Clean Grants, rebates, and other types of support for projects that reduce emissions from 

Diesel Campaign older diesel engines, including those in freight vehicles, vessels, and locomotives. 

engine configurations, idle-reduction 

technologies, and early engine or equipment

replacements. Eligible diesel vehicles, 

engines, and equipment include heavyduty highway vehicles, locomotive engines, 

marine engines, and non-road engines, 

equipment, or vehicles used in handling of 

cargo, including at ports or airports. 

• The Clean Cities Program of the U.S. 

Department of Energy has awarded nearly 

$400 million to States, MPOs, and local 

governments for hundreds of projects that 

reduce petroleum use in transportation. 

These project awards contribute to the 

program’s primary goal of reducing petroleum 

use in the U.S. by 2.5 billion gallons per year 

by 2020. Funded projects have included the 

installation of idle-reduction equipment on 

tractor-trailers, the introduction of all-electric 

and hybrid-electric vehicles into public and 

private fleets, the conversion of conventional 

vehicles to run on natural gas and propane, 

and the installation of refueling infrastructure 

for alternative fuels. 

Table 4. Federal Funding Sources for Freight Projects
 

 

Acronyms 

AL Alley loading 

BID Business Improvement District

CCC Construction consolidation center 

CLP Construction logistics plan 

CLZMP Commercial Loading Zone Management Program

CMAQ Congestion Mitigation and Air Quality Improvement

CMP Congestion management process 

DDOT District of Columbia Department of Transportation 

DERG Diesel Emissions Reduction Grant 

EPA Environmental Protection Agency 

FAST Act Fixing America’s Surface Transportation Act 

FASTLANE Fostering Advancements in Shipping and Transportation for the Long-Term 

Achievement of National Efficiencies

FDOT Florida Department of Transportation 

FHWA Federal Highway Administration 

FLZ Freight loading zone 

FQMD French Quarter Management District

FREVUE Freight Electric Vehicles in Urban Europe 

H-GAC Houston-Galveston Area Council 

HOS Hours of service regulations 

ITS Intelligent transportation systems

INFRA Infrastructure for Rebuilding America Grants

MARAD Maritime Administration 

Massport Massachusetts Port Authority

MPO Metropolitan planning organization

NCDOT North Carolina Department of Transportation 

NHFN National Highway Freight Network 

NHFP National Highway Freight Program 

NYCDOT New York City Department of Transportation 

OHD Off-hour delivery

OLT Operations, Logistics, and Technology strategies that can be used to improve freight 

mobility in urban areas 

PM2.5 Fine particulate matter 

POLA Port of Los Angeles 

POLB Port of Long Beach 

STBG Surface Transportation Block Grant Program 

STIP State Transportation Improvement Program

TAP Trusted Access Program 

TfL Transport for London 

TIGER Transportation Investment Generating Economic Recovery Grants

TIP Transportation Improvement Program

TMA Transportation management area 

57 
TPAS Truck Parking Availability System 

TSMO Transportation Systems Management and Operations Plan

UPWP Unified Planning Work Program

VIN Vehicle identification number

VS3 Vehicle Security and Scheduling System 

WIM Weigh-in-motion 

WTC World Trade Center 

58 
59 
60

Office of Freight Management and Operations

1200 New Jersey Avenue, SE

Washington, DC 20590

https://ops.fhwa.dot.gov/freight/

FreightFeedback@dot.gov

May 2018

FHWA-HOP-18-020