Aligning Oversize/Overweight Permit Fees with Agency Costs

106 Pages·2013·3.14 MB·English

Aligning Oversize/Overweight Fees
with Agency Costs: Critical Issues
TeresaAdams,Ph.D.,F.ASCE,ErniePerry,Ph.D.,AndrewSchwartz,BobGollnik,
MyungookKang,JasonBittner,andSteveWagner
NationalCenterforFreightandInfrastructureResearchandEducation
UniversityofWisconsin-Madison
WisDOTIDno.0092-10-21
CFIREIDno.03-17
August2013
Research & Library Unit National Center for Freight &
Infrastructure Research & Education
University of Wisconsin-Madison
WISCONSIN DOT
PUTTING RESEARCH TO WORK

Technical Report Documentation
1. Report No. CFIRE 03-17 2. Government Accession No. 3. Recipient’s Catalog No. CFDA 20.701
4. Title and Subtitle 5. Report Date August 2013
Aligning Oversize/Overweight Permit Fees with Agency Costs: Critical Issues
6. Performing Organization Code: PRJ37MT
7. Author/s 8. Performing Organization Report No.
Teresa Adams, Ernie Perry, Andrew Schwartz, Bob Gollnik, Myungook Kang, CFIRE 03-17

Jason Bittner, and Steve Wagner
9. Performing Organization Name and Address 10. Work Unit No. (TRAIS)
National Center for Freight and Infrastructure Research and Education (CFIRE)
University of Wisconsin-Madison 11. Contract or Grant No.
1415 Engineering Drive, 2205 EH
0092-10-21
Madison, WI 53706
12. Sponsoring Organization Name and Address 13. Type of Report and Period Covered
Wisconsin Department of Transportation Final Report [6/10/10-4/30/12]
4802 Sheboygan Avenue
Madison, Wisconsin 53707 14. Sponsoring Agency Code: 0092-10-21
15. Supplementary Notes
Project completed by CFIRE for the Wisconsin Department of Transportation.
16. Abstract
This project provides an elementary analysis of issues and a proposed framework for the state to evaluate cost recovery options
due to OSOW operations. The authors provide a review of current permitting practices, provide a sampling of fee structures, and
outline preliminary trends for OSOW demand in the foreseeable future. The basis for the project is the Midwest States, but the
findings incorporate national trends and data as appropriate.
The research team surveyed state DOTs for information on permit fee structures and the respective distribution and allocation of
permit revenue. The research team did not attempt to determine roadway, infrastructure, and other impacts of OSOW loads, but
rather document studies that attempt to monetize these values and provide observations. A methodology is proposed to generate
said costs, but the validation of such methodology was outside the scope of this study. Finally the project report details other
considerations, including truck-to-rail diversion potential if permit fees are increased. A series of best practices is provided to help
guide the operations of a permitting process.
The research team concludes that permit fees likely cannot recover the costs of issuance, however, in many agencies the permit fee
is not designed to be a cost recovery mechanism. This is magnified in the multitrip permitting processes available in most states.
The authors do not make a specific recommendation for agencies with respect to permit fee determination. The research team does
recommend additional and site specific research to determine the impact and associated cost of pavement damage due to single
trip, oversize and overweight movements.
17. Key Words 18. Distribution Statement
Motor carrier, permitting, permits, oversize, No restrictions. This report is available through the Transportation Research
overweight, dimensional Information Services of the National Transportation Library.
19. Security Classification (of this report) 20. Security Classification (of this 21. No. of Pages 22. Price
page)
Unclassified 103 -0-
Unclassified
Form DOT F 1700.7 (8-72) Reproduction of form and completed page is authorized.
DISCLAIMER
This research was funded by the Wisconsin Department of Transportation and the National
Center for Freight and Infrastructure Research and Education. The contents of this report reflect
the views of the authors, who are responsible for the facts and the accuracy of the information
presented herein. This document is disseminated under the sponsorship of the US Department
of Transportation, University Transportation Centers Program, in the interest of information
exchange. The US Government assumes no liability for the contents or use thereof. The
contents do not necessarily reflect the official views of the Wisconsin Department of
Transportation, the National Center for Freight and Infrastructure Research and Education, the
University of Wisconsin–Madison, or the US DOT’s RITA at the time of publication.
The United States Government assumes no liability for its contents or use thereof. This report
does not constitute a standard, specification, or regulation.
The United States Government does not endorse products or manufacturers. Trade and
manufacturers names appear in this report only because they are considered essential to the
object of the document.
2
Table of Contents
Technical Report Documentation.................................................................................................1
Executive Summary......................................................................................................................7
Introduction...................................................................................................................................9
Background...............................................................................................................................9
Study Objectives.....................................................................................................................10
Task Overview........................................................................................................................11
Freight Trends in the United States............................................................................................12
Rail to Truck Diversion............................................................................................................13
OSOW Demand and Permitting Trends.....................................................................................14
Demand by Commodity...........................................................................................................14
Demand by Industry................................................................................................................15
OSOW Permitting.......................................................................................................................18
Current Practices....................................................................................................................18
Permit Cost Comparisons.......................................................................................................22
Carrier Fees and Permit Costs...................................................................................................24
Purpose and Rationale............................................................................................................24
Scenarios................................................................................................................................24
Methods..................................................................................................................................26
Analysis...................................................................................................................................28
Recommendations..................................................................................................................32
Infrastructure Impacts of OSOW Loads......................................................................................35
Overview.................................................................................................................................35
OSOW Permit Rule.................................................................................................................36
Infrastructure Cost Framework................................................................................................37
Cost Thresholds for OSOW Operations..................................................................................44
Conclusions................................................................................................................................46
References.................................................................................................................................47
Appendix 1: Emerging Practices for OSOW Permitting..............................................................49
Survey of States......................................................................................................................49
Adopt Standard Envelope Characteristics for Permitting........................................................49
Establish Freight Advisory Committee; Engage Stakeholders................................................50
Automation..............................................................................................................................50
Link Permit Fees to Infrastructure Improvements...................................................................51
3
Continue Regular Regional Meetings for MAASTO SCOHT..................................................52
Ramp and Lane Closure System Information.........................................................................52
Publish and Maintain Review Schedules................................................................................52
Track Permit Revenue and Publicize the Results...................................................................53
Routing Efficiencies.................................................................................................................53
Embrace Social Media............................................................................................................53
Performance Measures...........................................................................................................53
Appendix 2: Revenue Survey Responses by State....................................................................55
Appendix 3: Revenue Survey Interview Questions.....................................................................68
Appendix 4: Detailed Responses by State.................................................................................69
Appendix 5: Infrastructure Impacts Literature Review................................................................71
Impact on Infrastructure..........................................................................................................74
Appendix 6: Multistate Permitting Agreements...........................................................................87
Appendix 7: Carrier Fees and Permit Costs Scenario Data.......................................................90
Scenario 1...............................................................................................................................90
Scenario 2...............................................................................................................................92
Scenario 3...............................................................................................................................93
Scenario 4...............................................................................................................................95
Scenario 5...............................................................................................................................97
Scenario 6.............................................................................................................................100
4
Tables of Figures
Figure 1: Sandstone Formations in Wisconsin...............................................................16
Figure 2: Freight Prioritization in State DOTs.................................................................18
Figure 3: Midwest State Thresholds for Superload permits ...........................................21
Figure 4: Costs of Representative Trucks in Midwest....................................................23
Figure 5: MAASTO survey questions show the breakdown of carrier fees and agency
costs by type. .................................................................................................................27
Figure 6: FHWA Freight Facts and Figures 2003-2011 -- Total and Non-Divisible Single
Trip Permits Issued.........................................................................................................33
Figure 7: Illustrative Truck Configurations and Characteristics of Typical Vehicles and
their Current Uses..........................................................................................................38
Figure 8: Representative Vehicle Configurations...........................................................38
Figure 9: Six Axle Configurations...................................................................................39
Figure 10: Seven Axle Configurations............................................................................40

Table 1: Commercial Vehicle Weight Enforcement Activities: 2005-2010 (AASHTO,
2007)..............................................................................................................................12
Table 2: Carrier Fees .....................................................................................................28
Table 3: Agency Costs...................................................................................................29
Table 4: Carrier Fees - Agency Costs Differences.........................................................30
Table 5: Escort Fees......................................................................................................31
Table 6: Framework to Determine Infrastructure Costs .................................................37
Table 7:Equivalent Single Axle Load Calculations.........................................................40
Table 8: ESAL Factors for Flexible Pavement ...............................................................41
Table 9: ESAL Factors for Rigid Pavements..................................................................41
Table 10: FHWA Vehicle Classification System.............................................................42
Table 11: WSDOT Vehicle Classification System..........................................................43

5
6
Executive Summary
As transportation costs rise due to congestion and energy prices, businesses are more aware of
the impacts these have on their bottom lines. Many state DOTs report freight prioritization as an
agency goal. Trucking is the preferred (and sometimes the only) mode to transport oversized
and overweight (OSOW) loads. The OSOW industry is the largest it has ever been when
measured by quantities of permits issued. There is a large degree of variation for permits by
state including permit issuance, permit fees, agency costs, and infrastructure impacts. This
study uses surveys and other research to consider the variations throughout the country and
Mid-American Association of State Transportation Officials (MAASTO) region in particular.
Specific industries often drive permitting trends, especially those with favorable legislative
provisions. Agriculture and other natural resources make up significant shares of the economy
in the Midwest. The energy industry has grown considerably in recent years, particularly
renewables like wind and hydraulic fracturing and frac sand mining.
DOTs must balance encouraging commerce and protecting infrastructure. Carrier fees, the
amount charge to an individual business to obtain an OSOW permit, and agency costs, the
amount incurred by the state government to fulfill and carry out a permit request, are indicative
of that balance, or at minimum, its perception. Carrier fees and agency costs were estimated for
six typical scenarios for the ten MAASTO states. Fee and cost variations were large across
states and scenarios. The largest discrepancies (positive and negative) were in the more
complicated scenarios. States with situationally triggered fees (bridge review, movement
feasibility fee) covered the agency costs for larger and less frequent loads traveling long
distances.
Recommendations for OSOW industry and its regulation include taking initial steps to improve
the fee structure across states, recognizing and adapting to trends, and contributing to overall
harmonization and uniformity. These changes will positively impact the carriers by reducing the
regulatory burden and time required to obtain permits.
7
8