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Intermodal Terminals: The Policy Issues. Presentation to BTRE Colloquium Canberra June 14-15, 2006. Overview of the paper. The intermodal system structure current task future challenges Thinking about intermodal policy Putting a coherent package together. Role of the IMT. - PowerPoint PPT Presentation
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1
Intermodal Terminals:The Policy Issues
Presentation to BTRE ColloquiumCanberraJune 14-15, 2006
2
Intermodal Terminals – the policy issues
Overview of the paper
The intermodal system
– structure
– current task
– future challenges
Thinking about intermodal policy
Putting a coherent package together
4
Intermodal Terminals – the policy issues
Role of the IMT
5
Intermodal Terminals – the policy issues
System or Systems?
The inter-state system
The import/export system
The intra-state regional system
In Australia, there are two – or possibly three – intermodal systems that interact to some extent but are largely, and I think increasingly, distinct systems
6
Intermodal Terminals – the policy issues
Domestic System
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Intermodal Terminals – the policy issues
Rail volumes and share by origin/destination
0
2,000
4,000
6,000
8,000
10,000
12,000
Syd - Perth Melb - Perth Melb - Syd Bris - Syd Melb - Bris Adel - Melb Syd-Ade Ade-Per
00
0 t
on
ne
s/y
ea
r
Rail Road
Source: Derived from BTRE WP66; ARTC 2005; Report 112
8
Intermodal Terminals – the policy issues
Volumes by Freight Corridor
10 5 4 3 2 1
Million tonnes per year
Scale
Road
Rail
Source: Derived from BTRE, ARTC Data
9
Intermodal Terminals – the policy issues
Future long-distance non-bulk rail freight
Not a given…….
Based on ARA Future of Freight, 2005
0.00 2.00 4.00 6.00 8.00 10.00 12.00
Melbourne-Brisbane
Sydney-Brisbane
Melbourne-Sydney
Melbourne-Adelaide
Melbourne-Perth
Adelaide-Perth
Sydney-Perth
billion ntk
Current Growth ARA: With rail reforms
10
Intermodal Terminals – the policy issues
Import/Export System
MIST
Villawood
Yennora
Camellia
Cooks Rivers(St Peters)
SYDNEY URBAN NETWORK
Source: National Intermodal Terminal Study
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Intermodal Terminals – the policy issues
International containers – major ports
0.00
0.50
1.00
1.50
2.00
2.50
3.00
3.50
4.00
4.50
5.00
2005 2010 2015 2020
Year
mill
ion
TE
U
Melbourne Sydney Brisbane Fremantle Adelaide
Source: Meyrick: National Intermodal Terminal Study
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Intermodal Terminals – the policy issues
Meeting proclaimed targets
Port-oriented rail volumes
0.00
0.20
0.40
0.60
0.80
1.00
1.20
1.40
Melbourne Sydney Brisbane Fremantle Adelaide
m T
EU
2005 2020
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Intermodal Terminals – the policy issues
ImplicationsSPECIFIC
Total increase in required in terminal capacity between 100% and 300% over the next 15 years
Require redevelopment/extension of most major inter-State nodes
Extent of development of additional terminals for domestic market will depend on market structure
Need for additional import/export IMTs ,especially but not exclusively in Sydney
Pressure on terminal space will aggravate access issues
GENERAL
IMTs will play a pivotal role, but can only be talked about sensibly as an element of the freight infrastructure network
Meeting future freight infrastructure demands will be a major challenge, especially in urban centres
Lots and lots of government money is going to be spent on meeting this challenge
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Intermodal Terminals – the policy issues
Towards a comprehensive approach to IMT policy
What is the role of government in a sector that is (largely) privately owned and operated?
Project facilitation
Infrastructure Access regulation
Skill development
Funding
Land banking
Planning
Pricing
Information
Policy clarity
Technical regulation
Core role Possible roleContributing role
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Intermodal Terminals – the policy issues
Policy – some definitions
A line of argument rationalizing the course of action of a government wordnet.princeton.edu
A policy is a plan of action to guide decisions and actions.... Policies in short can be understood as political, management, financial, and administrative mechanisms arranged to reach explicit goals. Wikipedia
Rationalise: 1. To invent a rational,
acceptable explanation for behaviour which has its origin
in the unconscious8. To justify one’s behaviour by
plausible reasons Macquarie Dictionary
A plan or course of action, as of a government, political party, or business, intended to influence and determine decisions, actions, and other matters. World Bank (youthink)
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Intermodal Terminals – the policy issues
The public image of the freight transport system
Intermodal policy is policy – and therefore it is going to be political
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Intermodal Terminals – the policy issues
Modal shift objectives as policy
Most governments have set mode share objectives for freight
Typically these apply only to import/exports movements
There does not appear to be much foundation for the specific targets
More than a pious hope than a policy:
– a target without an objective
– a goal without a strategy
Coherently articulate the objectives of the policy
Clearly present the specific outcomes that are expected
Define the steps that will be taken to deliver these outcomes
An adequate intermodal policy will need to do (at least) three things:
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Intermodal Terminals – the policy issues
Planning
THREE MAJOR CHALLENGES FOR INTERMODAL SYSTEMS PLANNING
DEFINING THE APPROPRIATE SCOPE
AND LIMITS OF PLANNING
RECONCILING THE PLANNING
OBJECTIVES OF DIFFERENT LEVELS OF
GOVERNMENT
MOVING BEYOND PLATITUDES TO PLANS
AND BEYOND CONCEPTS TO
COMMITMENTS
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Intermodal Terminals – the policy issues
IMTs and TDL clusters
Industrial clustering
in/around IMT
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Intermodal Terminals – the policy issues
Sydney Ports Enfield Plan (Cycle 2)
Warehouses for unpacking/packing
Some light industry, commercial activity
Container storage & recycling
Warehouses for unpacking/packing
Some light industry, commercial activity
Container storage & recyclingContainer storageand repair
Deconsolidation/warehousing
Associated light industry
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Intermodal Terminals – the policy issues
Information
Widespread acknowledgement of the need for coordination and integration
In reality, powerful players are reluctant to release information–Commercial confidentiality
–Legal concerns
–Just had enough
Costs–Lower quality of public decision making
–Higher information search costs
Voluntary approach advocated in NTDF report appears doomed
Regulatory requirements to disclose information exist elsewhere
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Intermodal Terminals – the policy issues
Technical Regulation
For most intermodal movements, a road leg will always be part of the journey
Pick up and set down costs are often a significant part of the total intermodal transport cost
Providing special mass or dimensions concessions on specific routes to/from intermodal terminals can help to reduce this burden
In France, heavy vehicles travelling to intermodal facilities are permitted to carry heavier loads than under prescribed limits applicable to general movements.
25
Intermodal Terminals – the policy issues
Project facilitation
Some progress– ‘Exports and Infrastructure Taskforce’ advocated ‘one stop shop’ approach for
major projects
– COAG accepted this in principle at June 2005 meeting
– Most jurisdictions are moving or have moved to set up something along these lines
BUT
The old problem – moving from principle to practice
Yet to see how this works for an integrated system or network of projects
26
Intermodal Terminals – the policy issues
Infrastructure
Road Rail TerminalAccess to freeways/ high stand arterials
Avoidance of congestion
Access for high productivity vehicles
Track quality
Track capacity
Access to network
Access to train paths
Adequate siding length
Sufficient paved working areas
Services access
Integration
27
Intermodal Terminals – the policy issues
PricingGovernment has direct control only over pricing of access to the road network
Government influences pricing of rail infrastructure through regulatory regimes
Current pricing issues:
– mass-distance charging
– congestion pricing
– pricing for externalities
– levies to achieve specific outcomes
All of these are economically unexceptionable
A bit trickier
28
Intermodal Terminals – the policy issues
Access regulation
Always a two-edged sword– risk of discouraging investment
– need to preserve opportunities for innovation
Two access issues:– Access to the terminal
– Access to the network
Lots of smoke – probably some fire
Att
ract
iven
ess
of t
erm
inal
as
inve
stm
ent
Feasibility of duplication
Increasing case for in
tervening to
secure multi-p
arty access
29
Intermodal Terminals – the policy issues
Land Banking
Government often holds the most attractive sites
Differences between public and private:
– time preference rates
– scope of benefits captured
Government has access to instruments that private sector does not
30
Intermodal Terminals – the policy issues
Skills development
Shortage of skilled and even semi-skilled labour an across-the-board issue for transport.
Labour needs of simple IMT are modest
Access to labour and skills in sufficient quantity can be key to the success of more complex IMTs:
–especially the more ambitious ones on the Freight Village model
–Regional areas
Management skills can also be a problem
Skills problems also in public sector
–The retreat of government
–Rapid staff turnover
–Institutional instability
31
Intermodal Terminals – the policy issues
Funding
How?
Subsidised loans
Land purchase and lease back
Operating Grant Schemes
Capital Grant Schemes
When?
Commercially viable terminals
Hard to see justification
Marginally viable IMTs
Development assistance?
Non-commercial IMTs
Ongoing assistance (but you’d have to have a very good reason in terms of the rest of the network)
32
Intermodal Terminals – the policy issues
Concluding remarks
The title is wrong – the issue is intermodal policy, not intermodal TERMINAL policy
Governments are going to spend a heap of money on freight infrastructure, and are therefore going to have policies – the only choice is whether we have coherent or incoherent ones
The objectives of intermodal policy are not going to be purely economic – but we should be working hard to make that the strategies for achieving them are economically sensible
The less time we spend on road v rail spats, and the more we spend on thinking about how best to integrate the two, the better off we are all going to be