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Sustainable Goods Supply and Transport in Conurbations: Freight Strategies and Guidelines
Available online at www.sciencedirect.com
Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
The Seventh International Conference on City Logistics
Sustainable goods supply and transport in conurbations: Freight strategies and guidelines Martin Ruescha , Philipp Hegia, Ueli Haefelib, Daniel Mattib, Barbara Schultzc, Philipp Rütschec a
Rapp Trans Ltd., Switzerland b Interface, Switzerland c Swiss Federal Institute of Technology, Switzerland
Abstract Urban freight transport is becoming more and more important in Switzerland and also other countries. On the one hand we face negative impacts on the environment and society and on the other hand urban freight distribution is getting more and more costly and less reliable due to traffic jams. Within a Swiss project the goods supply and transport in conurbations has been investigated, key factors and sustainability indicators derived, an evaluation frame for measures developed, measures and strategies for more sustainable goods supply and transport carried out and assessed and an implementation plan developed. Within a follow up project guidelines for freight planning in urban areas have been carried out. During the City Logistics Conference in Crete in 2007 the first results of the national research project Sustainable Goods Supply and Transport in Conurbations (Agglomerations) (2006-2009) have been presented. Especially the results on Freight indicators and development in conurbations, key factors for urban freight development and relevance of freight transport, locations requirements for logistics and freight transport facilities and acceptance of urban freight measures. This paper provides further results on the institutional integration of freight transport in public planning, on urban freight measures and strategies and on the implementation of measures and success factors.
© 2012 2012Published Published Elsevier Selection peer-review under responsibility of the 7th byby Elsevier Ltd.Ltd. Selection and/orand/or peer-review under responsibility of 7th International Conference on Conference City Logisticson City Logistics International Keywords: Urban freight; sustainable freight transport
Corresponding author. Tel.: +41-43-2686043; fax: +41-43-2686040. E-mail address: [email protected]
1877-0428 © 2012 Published by Elsevier Ltd. Selection and/or peer-review under responsibility of 7th International Conference on City Logistics doi:10.1016/j.sbspro.2012.03.095
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
1. Introduction Within the project Sustainable goods supply and transport in conurbations key factors and sustainability indicators were derived, an evaluation frame for measures developed, measures and strategies for more sustainable goods supply and transport carried out and assessed and an implementation plan developed (Ruesch et al., 2009). Based on the results and further investigations guidelines for freight planning in urban areas have been carried out (Ruesch and Petz, 2011). The planning guideline contributes to a better consideration of freight transport in transport and land use planning. The guideline also raises awareness for freight issues in conurbations. Target audience for the planning guidelines are authorities on national, regional and local level, consulting and planning companies, research institutes and shippers, logistics and transport service providers as well. Both projects have been co-financed by the Swiss Federal Roads Office (FEDRO), the Swiss Federal Office of Transport, the Swiss Science Foundation, the Cantons of Zurich, Graubünden and Schaffhausen and the City of Zurich.
Fig. 1. Typical situation in Swiss urban areas
2. Institutional integration of freight transport in public planning 2.1. Roles and influencing opportunities of different actors In urban areas different actors and stakeholders are involved identifying need for action, derivation of objectives, development of and implementation of measures (Ruesch et al., 2011). The role of the administration is in the first place to set the framework conditions for a more sustainable goods supply and freight transport. There are the following options:
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Table 1. Roles and fields of action of administration
The role of the industry (shippers, logistics and transport service providers) is to design and implement more sustainable logistics and transport. Table 2. Roles and areas of action of industry
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
2.2. Organisational integration and tasks relating to freight transport planning authorities The organisational integration of freight planning at the administration is an important precondition for sustainable and integrated transport and land use planning (Ruesch et al., 2011). Especially the responsibilities and tasks for freight issues have to be governed. This is important administration internally and externally against the public. A responsible administration contact point for freight issues for other authority units, planners, investors, the industry and the public is a suitable instrument for information and communication and supports the cooperation between the actors already in an early stage of a project. A core committee could be established consisting of the most important administrative units. The organisational structure of communities and regions is very different, so there is not only one good solution for the integration of freight issues in the administration. The following figures show two examples taking into account the typical administrational structure in Switzerland. Cantonal Administration
Economic Department
Building Department
Office of Transport (Lead)
Civil engineering office
Office of economy and work
Office of waste, water , energy and air
Security Department Cantonal police
Office of planning and surveying
Fig. 2. Organizational integration of freight in the administration on regional level
Communal Administration
Civil engineering and waste management department Civil engineering office Mobility and Planning (Lead)
Health and environment department Environment and health
Police department
Civil engineering department
Transport department
Office of construction permission
Fig. 3. Organizational integration of freight in the administration on community level
In the following tables the tasks and instruments of the administrations on regional/cantonal and community level are shown. The instruments used can vary depending on the local rules and regulations. The detailed definition of tasks has to consider the local framework conditions and circumstances. The tasks relating to public involvement include the co-operation between the administration and private actors within the administrational units themselves (Table 3).
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Table 3. Tasks related to public involvement
The tasks relating to planning fundamentals include freight statistics, freight inquiries, freight transport analysis and forecasts (Table 4). Table 4. Tasks related to planning fundamentals
The tasks relating to strategy development include problem analysis, derivation of targets, development of scenarios and integration of freight in the overall transport strategy (Table 5). Table 5. Tasks related to strategy development
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
The tasks relating to spatial planning include the implementation of national conditions, securing suitable spaces for logistics and transport activities and integration of freight transport in land use and transport plans. Also the freight transport access to buildings and areas should be dealt with regarding city development and freight intensive activities (Table 6). Table 6. Tasks related to spatial planning
The tasks relating to transport planning include the development of freight related measures and the integration of freight in the overall transport planning (Table 7). Table 7. Tasks related to transport planning
The tasks relating to implementation/realisation include the implementation of national conditions, exante evaluations and the coordination of implementation (Table 8).
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Table 8. Tasks related to implementation/realization
The tasks relating to monitoring/controlling include the ex-post evaluation of measures, continuous observation of logistics and freight development and assessment of the need for action (Table 9). Table 9. Tasks related to monitoring / controlling
2.3. Policy targets and evaluation frame The evaluation of measures should increase the quality of decisions by the authority by measuring the effects of measures against the objectives defined. Evaluations can be done ex ante (for planned measures) and ex post (for implemented measures). The following evaluation frame outlines a standardized process for the assessment of urban freight measures and strategies (Haefeli 2000 and Ruesch et al 2007-2009) It considers the perspective of the authority and has therefore a politico-economic view. On the basis of this evaluation frame existing situations and planned measures can be assessed. An evaluation frame has the following content: x Objectives and responsibilities for evaluation x Instruments for monitoring and controlling x General impact analysis model x Impact areas and effect targets x Set of indicators. The following figure shows a generalized impact model (Haefeli 2000). For each of the measures such an impact model with the effect chains has to be developed and analysed.
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
Concept
Enforcement
Objectives of Freight transport policy
Organisation Instruments Re Resources
Output
Products Activities
Impact
Reaction target groups
Outcome
Effects at affected pe people Ch Change in target variables
Fig. 4. Generalized impact model
Objectives can be differentiated in five impact areas and distributed to the three sustainability dimensions (Haefeli 2000).
En
y
ro
vi
m
o on
Traffic quality
Environmental quality
t
en
nm
Ec
Process quality Urban quality Traffic safety
Society
Fig. 5. Impact areas and sustainability dimensions
The impact areas are traffic quality (with nine effect targets), traffic safety (three effect targets), environmental quality (three effect targets), urban quality (four effect targets) and process quality (two effect targets). For every effect targets indicators have to be identified considering the relevance, representativeness, traceability, data availability and quality and the suitability to identify trends. The result is a set of indicators which can be used for the assessment of measures. 2.4. Policy targets and evaluation frame The following flow chart shows the classical process of transport planning applicated in Switzerland starting with the analysis of the actual situation and the previous development and ending with ex-post evaluation and (if necessary) concept adjustment (Ruesch et al., 2011, Fig. 5).
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1. Actual situation, weaknesses in transport, settlement, economy and environment 2. Stakeholder Analysis 3. Scenarios
4. Forecast
5. Future situation
6. Future weaknesses
7. Objectives and requirements
8. Demands and conditions
9.2 Development sub-concept of passenger transport
9.3 Development sub-concept of freight transport
9.4 Master plan alternatives
Feedback
Feedback
0. Partizipation
9. Concept development
9.1 Development sub-concept of settlement
10. Impact p analysis y 10.1 Primary impacts
10.2 Secondary impacts
10.3 Total effects 11. Ex-ante evaluation and assessment
12. Sensitivity analysis
13. Decision / choice of concept 14. Implementation, coordination and controlling 15. Ex-post evaluation and (if necessary) concept adjustment
Fig. 6. Planning process in Transport Planning
Freight issues are relevant during all the working steps covering actual situation, forecasts, concept development, effects analysis, evaluation and implementation. Especially important during the concept development phase is to carry out a sub-concept freight transport, with all the suitable measures from the logistics and freight transport view. For the impact analysis it may be suitable to use transport models which contains also freight transport. Feedback loops may be necessary depending on the results and political decisions. Participation / Public involvement is very important during nearly all the phases and workings steps.
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
2.5. Policy targets and evaluation frame Location decisions of shippers, logistics and transport service providers and administrations as well have a significant influence on the freight transport structure and the freight transport generation. Therefore it is important to follow a systematic approach for location planning and evaluation considering besides economical criteria also environmental and societal criteria. The following scheme shows the process of location planning and evaluation from the definition of the location requirements to the overall assessment and the location recommendation (Ruesch et al., 2011). Location Requirements
Market / Operator Requirements, Framework Conditions (incl. plan figures)
• Minimum Requirements / Exclusion Criteria • Assessment Criteria
Location Search and Investigation
Rough Evaluation Pre-selection of locations based on the most important assessment criteria
Economic Analysis - Return on Investment - Pay Back Period - Net Present Value
In Depth Evaluation (incl. Sensitivity Analysis, Risk Analysis, Proof of Feasibility)
Negotiations with authorities and land owners
Overall Assessment and Location recommendation
of the pre-selected locations
Feeback cycle
Location Basic Information (today / future) - Land use plans - Transport plans - Transport concepts - Terminal situation - Locations of shippers and Logistics/transport service providers - properties and owners - Building regulation - Land use regulations - Topography / Geology - Land availability - Land prices - Position / Interest of authorities - Surrounding - etc.
Simple Assessment Methods - Assessmen of Advantages/Disadvantages - Index-Assessment - Ranking Summation Assessment - Simplif ied Multi Criteria Analysis General Operational Concept and Terminal layout
Complex Assessment methods - Multi Criteria Analysis - Comparison Value Assessment - Cost/Ef f ectivenes Analysis - Cost-Benef it-Analysis
Fig. 7. Location planning and evaluation process
In this context local location planning in urban areas is relevant. Important quantitative and qualitative location criteria for freight intensive facilities are: x Good access to motorways and main roads x Suitable lot size and cut x Synergies to other market actors x Nearness to production areas x Nearness to market areas x Good accessibility of intermodal terminal x Availability of private siding
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x x x x x x x x x x
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
Low land price Surface reserves for extension options Availability of qualified staff High acceptance by public authorities Low taxes and fees Low risk of traffic jams (no relevant capacity restraints) 24-hours operation possible Low sensitivity of the location along the access roads and around the location Low land use and building restrictions Low risks (permission, construction, operation)
Depending on the project the importance of these criteria can be different. This approach was successfully used in different location planning and evaluation projects in Switzerland, especially also for freight intensive facilities. 2.6. Public involvement In recent years it became obvious that public involvement also outside legal obligations is an essential precondition for good transport and land use planning (Ruesch et al 2011). For urban freight the following framework conditions have to be considered: x The actors from the industry are working under a big pressure of the daily business. It is difficult to integrate them in a continuous public involvement process. x The population concerned is often broad and not specific. Therefore it is not easy to find actors which are willing to participate in a large scale participation process. x Within the administration often the staff is not available which has the resources, the necessary knowledge on freight transport and logistics and the necessary knowledge for designing public involvement processes. x Therefore public involvement processes in freight transport are more complex and challenging than for other topics. They should only be done more for concrete projects and less for general strategies for freight transport. Important success factors for public involvement processes are: Public involvement should start before the solutions are available and discussed. All the participants need to be open for the results. All the participants should represent the solution agreed in the public for their actor groups. The borders of the handling options have to be defined at the beginning. Involved should be persons which really represent their actor group and are well accepted. Especially organisation which are authorised for complaints should be involved at an early stage. x The number of persons to be involved needs to be limited to have an effective and efficient public involvement process. x Meetings have to be organised well and conducted tight to limit the time for participants. x Excursions (to good practices) creates acceptance for innovations and set the ground for a closed cooperation between the participants. x x x x x
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
3. Urban freight measures and strategies 3.1. Urban freight strategy lines For the political discussion and implementation a concise formulation of a strategy is necessary. Therefore seven strategy lines have been derived from the need for action, the evaluation frame and the catalogue of measures. These strategy lines are: x To secure and increase efficiency and quality of the goods supply x To improve the accessibility of freight transport intensive land use (incl. establishment of land use premises) x To minimise the negative impact of freight transport x To reduce the conflicts with passenger and pedestrian transport (incl. bicycle) x To support and encourage the awareness for freight/logistics issues, education and innovation x To improve data and modelling instruments x To improve cooperation. 3.2. Urban freight measures A comprehensive approach to identify urban freight measures has been chosen as shown in Fig.8. Sustainability Indicators / Data analysis
Freight problems in conurbations
Evaluation Frame with target system Measures catalogues from BESTUFS, NICHES, COST 321, OECD etc.
Catalogue of measures (infrastructural, operational/organisational, regulating, economical, land use, technological, cooperative, educating/researching)
Assessment of effectiveness and feasibility Discussion with advisory group (effectivenes, acceptance, feasibility, etc
Problem-measure table for conurbaions in general Allready planned or implemented measures in conurbation X
Specific problems in a conurbation X
Action Plan for conurbation X
Fig. 8. Approach for identification of urban freight measures
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The measures have been derived from the identified problems and the identified targets. Information from previous and current European research projects was also used (especially from BESTUFS, BESTUFS II, COST 321, NICHES) in developing the catalogue of measures. The measures were organised into nine fields: infrastructural measures, operational and organisational measures, economical measures, land use measures, technological measures, legal measures, cooperational and educational measures. Fig. 9 shows the spectrum of investigated urban freight measures. infrastructural
educating / researching Eco-Drive education
Promotion "Best Practices"
Data/ analysis improvement
Heavy vehicles lanes Education of logistics planners and administrative staff
Involvement of private actors in planning
Promotion of cooperation
Improvement of information
B2B e-Commerce
Small sized container systems
Modal split conditions
Cross municipal industrial zones
Coordination of Spatial planning and accident prevention Line and location saving
Freight markets
land use planning
Sidings
Urban freight transport
Delivery by bicycles and e-bikes Packing stations
Delivery lanes Loading zones
Reservation systems Rail operation concepts
Transport management
Cargotram Access licences
Signalling of HGV Routes Emissions standards
Road Pricing
Transit bans Harmonising of access restrictions Night time delivery
Incentives
Trip contingents
Heavy vehicle fee for delivery vans Start-up financing of innovative combined transport offers Promotion of research
Restrictions (weight, length, time, …)
regulating
technological
Transport management systems
Trip and route planning
Urban distribution centres Access Combined transport facilities controls
Subsurface delivery
operational / organisational
cooperative
Monitoring
Driver safety training
economical
Fig. 9. Spectrum for urban freight measures
For the assessment of the impact of the measures the effect chains for urban freight were shown and the measure-impacts were assessed in a qualitative manner. Initially an investigation was conducted into which objectives are affected by the measure and secondly the contribution to the objective (positive or negative, small, medium, large impact) was rated by the experts of the research team and discussed with the advisory group. Where available, experiences from already implemented measures or ex ante analysis were considered. Based on this a measure-impact table was produced with aggregated objective achievement values in % considering effectiveness and feasibility of the measures. The priorities for the measures were assessed in a feasibility-effectiveness table. Overall 72 measures were investigated. Based on these assessment results and discussion with the advisory group, 28 measures were selected for an in depth analysis. The following table shows suitable main measures to improve urban freight.
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133 Table 10. Table of suitable main measures (selection)
x x x x x x x
Main Measures
Main Benefits
Effectiveness
Feasibility
Implementation /Good Practice examples
Loading and unloading zones for delivery vehicles
Increasing efficiency of urban distribution, improving traffic safety, less conflicts with passenger transport
very high
good
Munich, Düsseldorf, Barcelona, London
Signalling of truck routes
Relief of residential areas from truck traffic, improving traffic safety,
high
very good
Bremen
Limitation of loading/unloading times
Less conflicts with passenger transport, better use of loading/unloading areas,
high
good
Barcelona, London
Control of road transport regulations
Improving traffic safety, less conflicts with passenger transport
high
good
Land use measures to secure locations for rail transport
Increasing capacity for rail freight, improving rail access for freight intensive facilities
high
good
Transhipment facilities for intermodal freight transport
Improving intermodal access, increasing capacity of intermodal transport, reduction of environmental burdens
high
medium
Underground access for areas and buildings
Reduction of conflicts with passenger transport, better use of surface, limitation of emissions, improving safety
high
medium
Zurich, St. Gallen
Sihlcity Zurich,
The effects of these measures can be intensified by the following supporting measures: Stronger involvement of private actors in freight transport planning Improving data collection for urban freight transport Monitoring and controlling of urban freight strategies Improving urban freight modelling Education and training on urban freight issues Promotion of best practices Financial support for research and innovations.
4. Implementation and success factors 4.1. Implementation steps For the implementation of freight strategies and measures in urban transport planning besides the political support also the acceptance by the stakeholders is an important precondition. A systematic approach is recommended form the problem analysis until the implementation (Fig. 10).
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Problems, need for action
Definition of objective, main approach Index of measures
Discussion with stakeholders Action plan
Implementation
Fig. 10. Systematic approach for implementation
Action plans are an important and suitable instrument to implement the strategies and measures developed. They also should consider the local framework conditions and problems and aim at tailormade solutions. Important requirements for action plans are x Concentration on the most important measures x Covering the strategy lines x Cost-effective measures relating to the targets set x Acceptance and feasibility of measures (including public and stakeholder involvement). x x x x x x x
Action plans should have the following content: Objectives Measures and priorities Necessary steps for implementation Responsibilities Resources needed Time frame / dead lines Controlling.
For the conurbation action plans the measures can be classed with the strategy lines. The action plan for a specific conurbation was derived from the problem-measure table for conurbations in general considering the local freight problems and already planned or implemented measures. Positive experiences with developing such action plans have been made with the conurbations of Zurich, Lugano and Chur. They have been created in workshops. The implementation process has still to be started. Guidelines, leaflets and check lists are important instruments to support transport and land use planning processes which consider freight issues in a proper way. They can be used by authorities, planners and consultants and also other actors. The city of Zurich for example developed a guideline for freight access planning for buildings and areas (Ruesch/and Petz, 2011). 4.2. Success factors An important precondition for a successful urban freight strategy is the organizational implementation of the related tasks and resources in the planning department. There are further success factors relevant
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
for the implementation of urban freight measures (Fig. 11), which have been derived from urban freight projects in Switzerland and evaluations of good practices within the BESTUFS-Project (www.bestufs.net).
Total system consideration Increased cooperation and communication between actors
Awareness raising of freight transport and logistics aspects
Urban freight transport Integrated (freight) transport and land use planning needed
in accordance with
Economy
Use of technical progress Æ innovations
Society Environment
Bundles of measures instead of single measures Win-Win situations
Different framework conditions Æ local designed taylormade solutions
Fig. 11. Critical success factors for implementation
The following points are important: x Planning authorities need to be aware of freight and logistics issues to ensure that these issues are tackled in the field of transport and land use planning. x In addition to urban deliveries, the impact on the total logistics and transport chain must be considered. x More cooperation and communication is needed; on the one side between authorities and shippers and logistics and transport service providers and on the other side between private parties and even between different authority departments. x Innovative solutions are needed taking into account technical progress. x Different local framework conditions require tailor-made solutions. x Authorities and the transport/logistics industry have different views on measures to solve today’s problems. A successful urban freight strategy has to consider this by trying to find a series of measures which create win-win situations for the public and private side. Such a strategy is the only way to achieve the necessary acceptance for the implementation of measures. x An integrated approach to transport and land use planning is useful in both the medium and long term.
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5. Conclusions Based on the former investigations and experiences we can derive the following conclusions: x Relating to freight transport in urban areas there is a need for action to secure an attractive and efficient goods supply and for mitigation of negative impacts of freight transport. x Freight and logistics aspects have to be better considered in land use, transport and infrastructure planning. x An important precondition for this is besides the political will a better organisational integration of freight transport in the administration with clear tasks and responsibilities. On the other hand there is a need to raise awareness for freight issues considering all relevant actors. x Important for a factual and target oriented discussion it is important to close data gaps, to improve education and training and to further develop methods and instruments for analysis and transport modelling. x Suitable methods and instruments can support the development of sustainable transport strategies. A stronger involvement of private actors as shippers, logistics and transport service providers in the land use transport planning is needed. x Innovative freight strategies contribute to a more sustainable goods supply and transport in urban areas. It is important that these measures are integrated in urban and regional transport and land use plans. x Both the administration and the industry can contribute to a more sustainable transport in urban areas. The administration is responsible for setting the framework conditions and the logistics and transport industry for designing logistics and transport systems. A close cooperation between administration and industry is essential. x Not single measures but a strategy with a bundle of measures is needed to contribute better to reach the targets. Attention should be paid to a balanced bundle of measures, which leads to a win-win situation for the administration and private actors. x Until freight issues are considered adequately in transport and land use planning compared to passenger transport efforts are needed from the public and private side on different levels.
References [1] Glücker C, Ruesch M. BESTUFS: Best Urban Freight Solutions, City Inquiry, European Survey on Transport and Delivery of Goods in Urban Areas, February 2001. Available on www.bestufs.net [2] Haefeli U. Strategies for sustainable transport - Experience from the interdisciplinary research project in the framework of NRP41 Transport and Environment. In: Interdisciplinarity: Joint problem-solving among science, technology and society, Proceedings of the International Interdisciplinarity 2000 Conference, Workbook I. Zurich; 27.2.-1.3.2000, p. 384-387. [3] Rapp, EBP. Feasibility of optimisation measures in urban freight: The city lorry. Zürich; 31. July 1998. [4] Ruesch M, Petz C. Leitfaden zur Güterverkehrserschliessung. Tiefbauamt der Stadt Zürich. Schweiz; 2011. [5] Ruesch M, Petz C, Haefeli U, Rütsche P. Güterverkehrsplanung in städtischen Gebieten. Handbuch (Entwurf); Zürich; 2011. [6] Ruesch M, Petz C, Hegi P, Haefeli U, Matti D, Rütsche P. Sustainable Goods Supply and Transport in Conurbations, NRP54, Final scientific report, Public version; 2009. (www.nfp54.ch) [7] Ruesch M, et al. Sustainable Goods Supply and Transport in Conurbations, NRP54.Working Documents; 2010. Partly published on www.nfp54.ch. [8] Ruesch M et al. Sustainable Goods Supply and Transport in Conurbations, NRP54. Working Documents; 2008-2009. Partly published on www.nfp54.ch. [9] Ruesch M, Hegi P, Haefeli U, Matti D, Schultz B, Rütsche P. Sustainable goods supply and transport in conurbations: Freight patterns and developments in Switzerland, 2007. [10] Ruesch M, Abel H. Best Urban Freight Solutions. Best Practice Handbook. Final Report. Thematic Network Project 5th FP, 2004.
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133 [11] OECD. Delivering the Goods: 21 st Century Challenges to Urban Goods Transport, 2003. [12] BESTUFS I (2000-2003). www.bestufs.net. [13] BESTUS II (2005-2008). www.bestufs.net. [14] NICHES (2004-2007). www.niches-transport.org [15] NRP (2005). www.nfp54.ch.
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Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
The Seventh International Conference on City Logistics
Sustainable goods supply and transport in conurbations: Freight strategies and guidelines Martin Ruescha , Philipp Hegia, Ueli Haefelib, Daniel Mattib, Barbara Schultzc, Philipp Rütschec a
Rapp Trans Ltd., Switzerland b Interface, Switzerland c Swiss Federal Institute of Technology, Switzerland
Abstract Urban freight transport is becoming more and more important in Switzerland and also other countries. On the one hand we face negative impacts on the environment and society and on the other hand urban freight distribution is getting more and more costly and less reliable due to traffic jams. Within a Swiss project the goods supply and transport in conurbations has been investigated, key factors and sustainability indicators derived, an evaluation frame for measures developed, measures and strategies for more sustainable goods supply and transport carried out and assessed and an implementation plan developed. Within a follow up project guidelines for freight planning in urban areas have been carried out. During the City Logistics Conference in Crete in 2007 the first results of the national research project Sustainable Goods Supply and Transport in Conurbations (Agglomerations) (2006-2009) have been presented. Especially the results on Freight indicators and development in conurbations, key factors for urban freight development and relevance of freight transport, locations requirements for logistics and freight transport facilities and acceptance of urban freight measures. This paper provides further results on the institutional integration of freight transport in public planning, on urban freight measures and strategies and on the implementation of measures and success factors.
© 2012 2012Published Published Elsevier Selection peer-review under responsibility of the 7th byby Elsevier Ltd.Ltd. Selection and/orand/or peer-review under responsibility of 7th International Conference on Conference City Logisticson City Logistics International Keywords: Urban freight; sustainable freight transport
Corresponding author. Tel.: +41-43-2686043; fax: +41-43-2686040. E-mail address: [email protected]
1877-0428 © 2012 Published by Elsevier Ltd. Selection and/or peer-review under responsibility of 7th International Conference on City Logistics doi:10.1016/j.sbspro.2012.03.095
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
1. Introduction Within the project Sustainable goods supply and transport in conurbations key factors and sustainability indicators were derived, an evaluation frame for measures developed, measures and strategies for more sustainable goods supply and transport carried out and assessed and an implementation plan developed (Ruesch et al., 2009). Based on the results and further investigations guidelines for freight planning in urban areas have been carried out (Ruesch and Petz, 2011). The planning guideline contributes to a better consideration of freight transport in transport and land use planning. The guideline also raises awareness for freight issues in conurbations. Target audience for the planning guidelines are authorities on national, regional and local level, consulting and planning companies, research institutes and shippers, logistics and transport service providers as well. Both projects have been co-financed by the Swiss Federal Roads Office (FEDRO), the Swiss Federal Office of Transport, the Swiss Science Foundation, the Cantons of Zurich, Graubünden and Schaffhausen and the City of Zurich.
Fig. 1. Typical situation in Swiss urban areas
2. Institutional integration of freight transport in public planning 2.1. Roles and influencing opportunities of different actors In urban areas different actors and stakeholders are involved identifying need for action, derivation of objectives, development of and implementation of measures (Ruesch et al., 2011). The role of the administration is in the first place to set the framework conditions for a more sustainable goods supply and freight transport. There are the following options:
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Table 1. Roles and fields of action of administration
The role of the industry (shippers, logistics and transport service providers) is to design and implement more sustainable logistics and transport. Table 2. Roles and areas of action of industry
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
2.2. Organisational integration and tasks relating to freight transport planning authorities The organisational integration of freight planning at the administration is an important precondition for sustainable and integrated transport and land use planning (Ruesch et al., 2011). Especially the responsibilities and tasks for freight issues have to be governed. This is important administration internally and externally against the public. A responsible administration contact point for freight issues for other authority units, planners, investors, the industry and the public is a suitable instrument for information and communication and supports the cooperation between the actors already in an early stage of a project. A core committee could be established consisting of the most important administrative units. The organisational structure of communities and regions is very different, so there is not only one good solution for the integration of freight issues in the administration. The following figures show two examples taking into account the typical administrational structure in Switzerland. Cantonal Administration
Economic Department
Building Department
Office of Transport (Lead)
Civil engineering office
Office of economy and work
Office of waste, water , energy and air
Security Department Cantonal police
Office of planning and surveying
Fig. 2. Organizational integration of freight in the administration on regional level
Communal Administration
Civil engineering and waste management department Civil engineering office Mobility and Planning (Lead)
Health and environment department Environment and health
Police department
Civil engineering department
Transport department
Office of construction permission
Fig. 3. Organizational integration of freight in the administration on community level
In the following tables the tasks and instruments of the administrations on regional/cantonal and community level are shown. The instruments used can vary depending on the local rules and regulations. The detailed definition of tasks has to consider the local framework conditions and circumstances. The tasks relating to public involvement include the co-operation between the administration and private actors within the administrational units themselves (Table 3).
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Table 3. Tasks related to public involvement
The tasks relating to planning fundamentals include freight statistics, freight inquiries, freight transport analysis and forecasts (Table 4). Table 4. Tasks related to planning fundamentals
The tasks relating to strategy development include problem analysis, derivation of targets, development of scenarios and integration of freight in the overall transport strategy (Table 5). Table 5. Tasks related to strategy development
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The tasks relating to spatial planning include the implementation of national conditions, securing suitable spaces for logistics and transport activities and integration of freight transport in land use and transport plans. Also the freight transport access to buildings and areas should be dealt with regarding city development and freight intensive activities (Table 6). Table 6. Tasks related to spatial planning
The tasks relating to transport planning include the development of freight related measures and the integration of freight in the overall transport planning (Table 7). Table 7. Tasks related to transport planning
The tasks relating to implementation/realisation include the implementation of national conditions, exante evaluations and the coordination of implementation (Table 8).
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Table 8. Tasks related to implementation/realization
The tasks relating to monitoring/controlling include the ex-post evaluation of measures, continuous observation of logistics and freight development and assessment of the need for action (Table 9). Table 9. Tasks related to monitoring / controlling
2.3. Policy targets and evaluation frame The evaluation of measures should increase the quality of decisions by the authority by measuring the effects of measures against the objectives defined. Evaluations can be done ex ante (for planned measures) and ex post (for implemented measures). The following evaluation frame outlines a standardized process for the assessment of urban freight measures and strategies (Haefeli 2000 and Ruesch et al 2007-2009) It considers the perspective of the authority and has therefore a politico-economic view. On the basis of this evaluation frame existing situations and planned measures can be assessed. An evaluation frame has the following content: x Objectives and responsibilities for evaluation x Instruments for monitoring and controlling x General impact analysis model x Impact areas and effect targets x Set of indicators. The following figure shows a generalized impact model (Haefeli 2000). For each of the measures such an impact model with the effect chains has to be developed and analysed.
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133
Concept
Enforcement
Objectives of Freight transport policy
Organisation Instruments Re Resources
Output
Products Activities
Impact
Reaction target groups
Outcome
Effects at affected pe people Ch Change in target variables
Fig. 4. Generalized impact model
Objectives can be differentiated in five impact areas and distributed to the three sustainability dimensions (Haefeli 2000).
En
y
ro
vi
m
o on
Traffic quality
Environmental quality
t
en
nm
Ec
Process quality Urban quality Traffic safety
Society
Fig. 5. Impact areas and sustainability dimensions
The impact areas are traffic quality (with nine effect targets), traffic safety (three effect targets), environmental quality (three effect targets), urban quality (four effect targets) and process quality (two effect targets). For every effect targets indicators have to be identified considering the relevance, representativeness, traceability, data availability and quality and the suitability to identify trends. The result is a set of indicators which can be used for the assessment of measures. 2.4. Policy targets and evaluation frame The following flow chart shows the classical process of transport planning applicated in Switzerland starting with the analysis of the actual situation and the previous development and ending with ex-post evaluation and (if necessary) concept adjustment (Ruesch et al., 2011, Fig. 5).
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1. Actual situation, weaknesses in transport, settlement, economy and environment 2. Stakeholder Analysis 3. Scenarios
4. Forecast
5. Future situation
6. Future weaknesses
7. Objectives and requirements
8. Demands and conditions
9.2 Development sub-concept of passenger transport
9.3 Development sub-concept of freight transport
9.4 Master plan alternatives
Feedback
Feedback
0. Partizipation
9. Concept development
9.1 Development sub-concept of settlement
10. Impact p analysis y 10.1 Primary impacts
10.2 Secondary impacts
10.3 Total effects 11. Ex-ante evaluation and assessment
12. Sensitivity analysis
13. Decision / choice of concept 14. Implementation, coordination and controlling 15. Ex-post evaluation and (if necessary) concept adjustment
Fig. 6. Planning process in Transport Planning
Freight issues are relevant during all the working steps covering actual situation, forecasts, concept development, effects analysis, evaluation and implementation. Especially important during the concept development phase is to carry out a sub-concept freight transport, with all the suitable measures from the logistics and freight transport view. For the impact analysis it may be suitable to use transport models which contains also freight transport. Feedback loops may be necessary depending on the results and political decisions. Participation / Public involvement is very important during nearly all the phases and workings steps.
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2.5. Policy targets and evaluation frame Location decisions of shippers, logistics and transport service providers and administrations as well have a significant influence on the freight transport structure and the freight transport generation. Therefore it is important to follow a systematic approach for location planning and evaluation considering besides economical criteria also environmental and societal criteria. The following scheme shows the process of location planning and evaluation from the definition of the location requirements to the overall assessment and the location recommendation (Ruesch et al., 2011). Location Requirements
Market / Operator Requirements, Framework Conditions (incl. plan figures)
• Minimum Requirements / Exclusion Criteria • Assessment Criteria
Location Search and Investigation
Rough Evaluation Pre-selection of locations based on the most important assessment criteria
Economic Analysis - Return on Investment - Pay Back Period - Net Present Value
In Depth Evaluation (incl. Sensitivity Analysis, Risk Analysis, Proof of Feasibility)
Negotiations with authorities and land owners
Overall Assessment and Location recommendation
of the pre-selected locations
Feeback cycle
Location Basic Information (today / future) - Land use plans - Transport plans - Transport concepts - Terminal situation - Locations of shippers and Logistics/transport service providers - properties and owners - Building regulation - Land use regulations - Topography / Geology - Land availability - Land prices - Position / Interest of authorities - Surrounding - etc.
Simple Assessment Methods - Assessmen of Advantages/Disadvantages - Index-Assessment - Ranking Summation Assessment - Simplif ied Multi Criteria Analysis General Operational Concept and Terminal layout
Complex Assessment methods - Multi Criteria Analysis - Comparison Value Assessment - Cost/Ef f ectivenes Analysis - Cost-Benef it-Analysis
Fig. 7. Location planning and evaluation process
In this context local location planning in urban areas is relevant. Important quantitative and qualitative location criteria for freight intensive facilities are: x Good access to motorways and main roads x Suitable lot size and cut x Synergies to other market actors x Nearness to production areas x Nearness to market areas x Good accessibility of intermodal terminal x Availability of private siding
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x x x x x x x x x x
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Low land price Surface reserves for extension options Availability of qualified staff High acceptance by public authorities Low taxes and fees Low risk of traffic jams (no relevant capacity restraints) 24-hours operation possible Low sensitivity of the location along the access roads and around the location Low land use and building restrictions Low risks (permission, construction, operation)
Depending on the project the importance of these criteria can be different. This approach was successfully used in different location planning and evaluation projects in Switzerland, especially also for freight intensive facilities. 2.6. Public involvement In recent years it became obvious that public involvement also outside legal obligations is an essential precondition for good transport and land use planning (Ruesch et al 2011). For urban freight the following framework conditions have to be considered: x The actors from the industry are working under a big pressure of the daily business. It is difficult to integrate them in a continuous public involvement process. x The population concerned is often broad and not specific. Therefore it is not easy to find actors which are willing to participate in a large scale participation process. x Within the administration often the staff is not available which has the resources, the necessary knowledge on freight transport and logistics and the necessary knowledge for designing public involvement processes. x Therefore public involvement processes in freight transport are more complex and challenging than for other topics. They should only be done more for concrete projects and less for general strategies for freight transport. Important success factors for public involvement processes are: Public involvement should start before the solutions are available and discussed. All the participants need to be open for the results. All the participants should represent the solution agreed in the public for their actor groups. The borders of the handling options have to be defined at the beginning. Involved should be persons which really represent their actor group and are well accepted. Especially organisation which are authorised for complaints should be involved at an early stage. x The number of persons to be involved needs to be limited to have an effective and efficient public involvement process. x Meetings have to be organised well and conducted tight to limit the time for participants. x Excursions (to good practices) creates acceptance for innovations and set the ground for a closed cooperation between the participants. x x x x x
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3. Urban freight measures and strategies 3.1. Urban freight strategy lines For the political discussion and implementation a concise formulation of a strategy is necessary. Therefore seven strategy lines have been derived from the need for action, the evaluation frame and the catalogue of measures. These strategy lines are: x To secure and increase efficiency and quality of the goods supply x To improve the accessibility of freight transport intensive land use (incl. establishment of land use premises) x To minimise the negative impact of freight transport x To reduce the conflicts with passenger and pedestrian transport (incl. bicycle) x To support and encourage the awareness for freight/logistics issues, education and innovation x To improve data and modelling instruments x To improve cooperation. 3.2. Urban freight measures A comprehensive approach to identify urban freight measures has been chosen as shown in Fig.8. Sustainability Indicators / Data analysis
Freight problems in conurbations
Evaluation Frame with target system Measures catalogues from BESTUFS, NICHES, COST 321, OECD etc.
Catalogue of measures (infrastructural, operational/organisational, regulating, economical, land use, technological, cooperative, educating/researching)
Assessment of effectiveness and feasibility Discussion with advisory group (effectivenes, acceptance, feasibility, etc
Problem-measure table for conurbaions in general Allready planned or implemented measures in conurbation X
Specific problems in a conurbation X
Action Plan for conurbation X
Fig. 8. Approach for identification of urban freight measures
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The measures have been derived from the identified problems and the identified targets. Information from previous and current European research projects was also used (especially from BESTUFS, BESTUFS II, COST 321, NICHES) in developing the catalogue of measures. The measures were organised into nine fields: infrastructural measures, operational and organisational measures, economical measures, land use measures, technological measures, legal measures, cooperational and educational measures. Fig. 9 shows the spectrum of investigated urban freight measures. infrastructural
educating / researching Eco-Drive education
Promotion "Best Practices"
Data/ analysis improvement
Heavy vehicles lanes Education of logistics planners and administrative staff
Involvement of private actors in planning
Promotion of cooperation
Improvement of information
B2B e-Commerce
Small sized container systems
Modal split conditions
Cross municipal industrial zones
Coordination of Spatial planning and accident prevention Line and location saving
Freight markets
land use planning
Sidings
Urban freight transport
Delivery by bicycles and e-bikes Packing stations
Delivery lanes Loading zones
Reservation systems Rail operation concepts
Transport management
Cargotram Access licences
Signalling of HGV Routes Emissions standards
Road Pricing
Transit bans Harmonising of access restrictions Night time delivery
Incentives
Trip contingents
Heavy vehicle fee for delivery vans Start-up financing of innovative combined transport offers Promotion of research
Restrictions (weight, length, time, …)
regulating
technological
Transport management systems
Trip and route planning
Urban distribution centres Access Combined transport facilities controls
Subsurface delivery
operational / organisational
cooperative
Monitoring
Driver safety training
economical
Fig. 9. Spectrum for urban freight measures
For the assessment of the impact of the measures the effect chains for urban freight were shown and the measure-impacts were assessed in a qualitative manner. Initially an investigation was conducted into which objectives are affected by the measure and secondly the contribution to the objective (positive or negative, small, medium, large impact) was rated by the experts of the research team and discussed with the advisory group. Where available, experiences from already implemented measures or ex ante analysis were considered. Based on this a measure-impact table was produced with aggregated objective achievement values in % considering effectiveness and feasibility of the measures. The priorities for the measures were assessed in a feasibility-effectiveness table. Overall 72 measures were investigated. Based on these assessment results and discussion with the advisory group, 28 measures were selected for an in depth analysis. The following table shows suitable main measures to improve urban freight.
Martin Ruesch et al. / Procedia - Social and Behavioral Sciences 39 (2012) 116 – 133 Table 10. Table of suitable main measures (selection)
x x x x x x x
Main Measures
Main Benefits
Effectiveness
Feasibility
Implementation /Good Practice examples
Loading and unloading zones for delivery vehicles
Increasing efficiency of urban distribution, improving traffic safety, less conflicts with passenger transport
very high
good
Munich, Düsseldorf, Barcelona, London
Signalling of truck routes
Relief of residential areas from truck traffic, improving traffic safety,
high
very good
Bremen
Limitation of loading/unloading times
Less conflicts with passenger transport, better use of loading/unloading areas,
high
good
Barcelona, London
Control of road transport regulations
Improving traffic safety, less conflicts with passenger transport
high
good
Land use measures to secure locations for rail transport
Increasing capacity for rail freight, improving rail access for freight intensive facilities
high
good
Transhipment facilities for intermodal freight transport
Improving intermodal access, increasing capacity of intermodal transport, reduction of environmental burdens
high
medium
Underground access for areas and buildings
Reduction of conflicts with passenger transport, better use of surface, limitation of emissions, improving safety
high
medium
Zurich, St. Gallen
Sihlcity Zurich,
The effects of these measures can be intensified by the following supporting measures: Stronger involvement of private actors in freight transport planning Improving data collection for urban freight transport Monitoring and controlling of urban freight strategies Improving urban freight modelling Education and training on urban freight issues Promotion of best practices Financial support for research and innovations.
4. Implementation and success factors 4.1. Implementation steps For the implementation of freight strategies and measures in urban transport planning besides the political support also the acceptance by the stakeholders is an important precondition. A systematic approach is recommended form the problem analysis until the implementation (Fig. 10).
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Problems, need for action
Definition of objective, main approach Index of measures
Discussion with stakeholders Action plan
Implementation
Fig. 10. Systematic approach for implementation
Action plans are an important and suitable instrument to implement the strategies and measures developed. They also should consider the local framework conditions and problems and aim at tailormade solutions. Important requirements for action plans are x Concentration on the most important measures x Covering the strategy lines x Cost-effective measures relating to the targets set x Acceptance and feasibility of measures (including public and stakeholder involvement). x x x x x x x
Action plans should have the following content: Objectives Measures and priorities Necessary steps for implementation Responsibilities Resources needed Time frame / dead lines Controlling.
For the conurbation action plans the measures can be classed with the strategy lines. The action plan for a specific conurbation was derived from the problem-measure table for conurbations in general considering the local freight problems and already planned or implemented measures. Positive experiences with developing such action plans have been made with the conurbations of Zurich, Lugano and Chur. They have been created in workshops. The implementation process has still to be started. Guidelines, leaflets and check lists are important instruments to support transport and land use planning processes which consider freight issues in a proper way. They can be used by authorities, planners and consultants and also other actors. The city of Zurich for example developed a guideline for freight access planning for buildings and areas (Ruesch/and Petz, 2011). 4.2. Success factors An important precondition for a successful urban freight strategy is the organizational implementation of the related tasks and resources in the planning department. There are further success factors relevant
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for the implementation of urban freight measures (Fig. 11), which have been derived from urban freight projects in Switzerland and evaluations of good practices within the BESTUFS-Project (www.bestufs.net).
Total system consideration Increased cooperation and communication between actors
Awareness raising of freight transport and logistics aspects
Urban freight transport Integrated (freight) transport and land use planning needed
in accordance with
Economy
Use of technical progress Æ innovations
Society Environment
Bundles of measures instead of single measures Win-Win situations
Different framework conditions Æ local designed taylormade solutions
Fig. 11. Critical success factors for implementation
The following points are important: x Planning authorities need to be aware of freight and logistics issues to ensure that these issues are tackled in the field of transport and land use planning. x In addition to urban deliveries, the impact on the total logistics and transport chain must be considered. x More cooperation and communication is needed; on the one side between authorities and shippers and logistics and transport service providers and on the other side between private parties and even between different authority departments. x Innovative solutions are needed taking into account technical progress. x Different local framework conditions require tailor-made solutions. x Authorities and the transport/logistics industry have different views on measures to solve today’s problems. A successful urban freight strategy has to consider this by trying to find a series of measures which create win-win situations for the public and private side. Such a strategy is the only way to achieve the necessary acceptance for the implementation of measures. x An integrated approach to transport and land use planning is useful in both the medium and long term.
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5. Conclusions Based on the former investigations and experiences we can derive the following conclusions: x Relating to freight transport in urban areas there is a need for action to secure an attractive and efficient goods supply and for mitigation of negative impacts of freight transport. x Freight and logistics aspects have to be better considered in land use, transport and infrastructure planning. x An important precondition for this is besides the political will a better organisational integration of freight transport in the administration with clear tasks and responsibilities. On the other hand there is a need to raise awareness for freight issues considering all relevant actors. x Important for a factual and target oriented discussion it is important to close data gaps, to improve education and training and to further develop methods and instruments for analysis and transport modelling. x Suitable methods and instruments can support the development of sustainable transport strategies. A stronger involvement of private actors as shippers, logistics and transport service providers in the land use transport planning is needed. x Innovative freight strategies contribute to a more sustainable goods supply and transport in urban areas. It is important that these measures are integrated in urban and regional transport and land use plans. x Both the administration and the industry can contribute to a more sustainable transport in urban areas. The administration is responsible for setting the framework conditions and the logistics and transport industry for designing logistics and transport systems. A close cooperation between administration and industry is essential. x Not single measures but a strategy with a bundle of measures is needed to contribute better to reach the targets. Attention should be paid to a balanced bundle of measures, which leads to a win-win situation for the administration and private actors. x Until freight issues are considered adequately in transport and land use planning compared to passenger transport efforts are needed from the public and private side on different levels.
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