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Zero-Emission Delivery Zone: City of Portland SMART Grant

The Portland Bureau of Transportation (PBOT) was awarded a nearly $2 million Strengthening Mobility and Revolutionizing Transportation (SMART) Grant by the US Department of Transportation (USDOT) in Fall 2023 to pilot the country’s first regulated Zero-Emission Delivery Zone in downtown Portland and test digital infrastructure tools. This project will test an innovative set of incentives and regulations to better understand what technology and strategies municipalities can use to support and reduce greenhouse gas emissions in the freight sector.

While other cities in the United States have piloted voluntary Zero-Emission Delivery Zones (ZEDZs) to encourage the transition of commercial fleets to zero-emission modes, Portland will be the first U.S. city to pilot a regulated ZEDZ. The regulated ZEDZ will be active during a demonstration period of approximately six months beginning in late summer/early fall of 2024. During this temporary demonstration period, the parking rules for all truck loading zones within the project area will be changed to prioritize access for zero-emission vehicles only (see Figure 1). Loading zones within the ZEDZ will be monitored by parking sensors, both before and after the approximately six-month long demonstration period, so that project staff can better understand the impact of this regulation. These loading zones will be referred to as Zero-Emission Loading Zones.

This pilot project will also test a variety of partnerships and incentives to accelerate the movement of “clean goods,” or goods with fewer negative impacts to health and the environment. This could include diverting existing deliveries into the ZEDZ to local fleets of electric-assist cargo trikes and electric vehicles, vans and trucks, or supporting local delivery companies in transitioning their own fleets to zero-emission modes.

This project is enabled by a nearly $2 million USDOT SMART Stage 1 pilot and prototyping grant. Depending on outcomes from this pilot project, PBOT will have the opportunity to apply for a Stage 2 implementation grant for up to $15 million to refine or scale promising strategies identified in the initial pilot project. The two stages of the SMART grant program are unique in that they allow the City of Portland to test several strategies on a small scale before exploring any larger-scale implementation. All of this work is in service to Portland’s values around climate and transportation justice: a safer, cleaner, and more equitable system for delivering goods and services.

Draft map of project area showing proposed zero-emission load zones updated in March 2024. Loading zone site selection will be refined with stakeholder input in late Spring 2024.

Scope of Work

The Urban Freight Lab (UFL) was approached by PBOT to assist in their Phase 1 SMART grant implementation. The UFL will provide subject matter expertise on the topics of urban freight, curb management, and freight decarbonization. They will support PBOT in the form of interviews and/or surveys to summarize current carrier operations, current and future fleet composition, and loading activities.

  • Task 1. Project management and subject matter expertise support
    • Deliverables: Attend meetings and provide subject matter expert consultation as needed.
  • Task 2. Document how some carriers and delivery operators would be impacted by a zero-emission delivery zone (ZEDZ) in Portland, including understanding current and planned fleet composition, interactions with the curb, and barriers and opportunities for the City to support.
    • Deliverables: Interview questionnaire and summaries of answers (we will aggregate and anonymize results). Draft and final technical memo, with one PBOT review of the draft
Report

The Final 50 Feet of the Urban Goods Delivery System (Final Report)

 
Download PDF  (6.73 MB)
Publication Date: 2018
Summary:

Urban Freight Lab’s foundational report is the first assessment in any American city of the privately-owned and operated elements of the Final 50 Feet of goods delivery supply chains (the end of the supply chain, where delivery drivers must locate both parking and end customers). These include curb parking spaces, private truck freight bays and loading docks, street design, traffic control, and delivery policies and operations within buildings.

Goods delivery is an essential but little-noticed activity in urban areas. For the last 40 years, deliveries have been mostly performed by a private sector shipping industry that operates within general city traffic conditions. However, in recent years e-commerce has created a rapid increase in deliveries, which implies an explosion of activity in the future.

Meeting current and future demand is creating unprecedented challenges for shippers to meet both increased volumes and increasing customer expectations for efficient and timely delivery. Anecdotal evidence suggests that increasing demand is overwhelming goods delivery infrastructure and operations. Delivery vehicles parked in travel lanes, unloading taking place on crowded sidewalks, and commercial truck noise during late night and early morning hours are familiar stories in urban areas.

These conditions are noticeable throughout the City of Seattle as our population and employment rapidly increase. However, goods delivery issues are particularly problematic in Seattle’s high-density areas of Downtown, Belltown, South Lake Union, Pioneer Square, First Hill, Capitol Hill and Queen Anne, described as Seattle’s “Center City”. Urban goods transportation makes our economy and quality of life possible.

As the Seattle Department of Transportation (SDOT) responds to the many travel challenges of a complex urban environment, we recognize that goods delivery needs to be better understood and supported to retain the vitality and livability of our busiest neighborhoods.

U.S. cities do not have much information about the urban goods delivery system. While public agencies have data on city streets, public transportation and designated curbside parking, the “final 50 feet” in goods delivery also utilizes private vehicles, private loading facilities, and privately-owned and operated buildings outside the traditional realm of urban planning.

Bridging the information gap between the public and private sectors requires a new way of thinking about urban systems. Specifically, it requires trusted data sharing between public and private partners, and a data-driven approach to asking and answering the right questions, to successfully meet modern urban goods delivery needs.

The Urban Freight Lab (UFL) provides a standing forum to solve a range of short-term as well as long-term strategic urban goods problem solving, that provides evidence of effectiveness before strategies are widely implemented in the City.

Recommended Citation:
Supply Chain Transportation & Logistics Center. (2018) The Final 50 Feet of the Urban Goods Delivery System.
Paper

Simulation-Based Analysis of Different Curb Space Type Allocations on Curb Performance

 
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Publication: Transportmetrica B: Transport Dynamics
Volume: 11 (1)
Pages: 1384-1405
Publication Date: 2023
Summary:

Curbspace is a limited resource in urban areas. Delivery, ridehailing and passenger vehicles must compete for spaces at the curb. Cities are increasingly adjusting curb rules and allocating curb spaces for uses other than short-term paid parking, yet they lack the tools or data needed to make informed decisions. In this research, we analyze and quantify the impacts of different curb use allocations on curb performance through simulation. Three metrics are developed to evaluate the performance of the curb, covering productivity and accessibility of passengers and goods, and CO2 emissions. The metrics are calculated for each scenario across a range of input parameters (traffic volume, parking rate, vehicle dwell time, and street design speed) and compared to a baseline scenario. This work can inform policy decisions by providing municipalities tools to analyze various curb management strategies and choose the ones that produce results more in line with their policy goals.

Authors: Thomas MaxnerDr. Andisheh RanjbariŞeyma Güneş, Chase Dowling (Pacific Northwest National Laboratory)
Recommended Citation:
Thomas Maxner, Andisheh Ranjbari, Chase P. Dowling & Şeyma Güneş (2023) Simulation-based analysis of different curb space type allocations on curb performance, Transportmetrica B: Transport Dynamics, 11:1, 1384-1405, DOI: 10.1080/21680566.2023.2212324

Revenue-Related Strategies for New Mobility Options

The Urban Freight Lab (UFL) is partnering with ECONorthwest and Cityfi to develop a research product for the National Cooperative Highway Research Program (NCHRP) on the topic of revenue strategies for new mobility options. The team will analyze the public sector’s potential role in using revenue-related strategies to encourage or discourage new mobility options in personal mobility and goods delivery.

Transportation services often operate in publicly owned and publicly managed spaces, make use of public rights-of-way, and produce mobility benefits for a broad array of users. The public sector is responsible for managing and pricing those rights-of-way and delivering services in an equitable way. Recovering the public costs of management and provisioning from private transportation services and their users is essential for maintaining public benefit. And sometimes the public sector needs to help private services to thrive.

The research methodology for this project is designed to be iterative: activities and research will build on previous research and activities. We will begin with the development of a revenue framework informed by a broad review of the literature, a policy scan, and workshop sessions with transportation and other public agency representatives that regulate and collect revenue from new mobility services. The framework will include revenue-related strategies based on:

    • (a) identifiable need
    • (b) nexus to cost responsibility
    • (c) policy outcome
    • (d) other factors such as access to technology and ease of administration.

We will then take a deeper dive into each personal mobility mode and goods delivery market segment to apply the framework. We will also provide examples to illustrate the opportunities and challenges of a variety of revenue strategies. We will also conduct additional workshops with public agency representatives, industry representatives, and other transportation stakeholders. Finally, we will create a spreadsheet-based Revenue Calculator that allows interested individuals to estimate how much revenue could be generated using different assumptions and strategies. The work will culminate with the development of a Toolkit that will be submitted to NCHRP and made available for wider distribution.

Objectives

The objective of this research is to develop a toolkit for transportation agencies that addresses how revenue-related strategies (e.g., taxes, fees, and subsidies) support policy objectives and shape the deployment of new mobility options. The toolkit will assist agencies to develop, evaluate, implement, and administer revenue-related strategies for new mobility options that transport people and goods.

The research will include:

  1. New and evolving transportation options for people and goods that interact with the existing built environment and travel throughout an area
  2. Incentives and disincentives that result from revenue-related strategies
  3. Policy implications of revenue-related strategies for new mobility options including revenue potential, mobility, travel demand, safety, equity, environment, economic development, infrastructure design, operations, and maintenance
  4. Mechanisms for revenue collection and distribution for different mobility options in different scenarios
  5. The ease and difficulty of implementing and enforcing different revenue-related strategies for new mobility options
  6. Potential roles and responsibilities of governmental organizations and private entities

Last-Mile Freight Curb Access: Digitizing the Last Mile of Urban Goods to Improve Curb Access and Use

The U.S. Department of Transportation (USDOT) awarded a $2 million grant under its SMART (Strengthening Mobility and Revolutionizing Transportation) grant program to support the development of the Last-Mile Freight Curb Access Program: Digitizing the Last Mile of Urban Goods to Improve Curb Access and Utilization, a collaboration between the Urban Freight Lab, Seattle Department of Transportation, and Open Mobility Foundation. This project will develop sensor-based technology solutions that address to transportation problems, enabling commercial vehicles to make faster, safer, and more efficient deliveries with reduced vehicle emissions.

The Last Mile Freight Curb Access Program focuses on providing commercial vehicle drivers with real-time information to park legally and expedite deliveries. Research from a 2019 Urban Freight Lab study showed that more than 40% of commercial vehicles in downtown Seattle park in unauthorized locations. Another study showed that equipping commercial vehicles with real-time parking availability and load zone information could reduce their “cruising” time by nearly 30%. The project aims to make information about curbside regulations digitized and more accessible to commercial drivers, and leverage this data to improve regulations.

Other cities including Portland, San Francisco, San Jose, Los Angeles, Minneapolis, Philadelphia, and Miami-Dade County have also received SMART grants to implement similar technology-based solutions for improving curb access.

Background

Since 2010, the Seattle Department of Transportation (SDOT) has been a national leader in data-driven curbside management by using parking occupancy data to set on-street parking rates. We proposed to extend our data-driven pricing and curb literacy to a new use: designated commercial vehicle load zones (CVLZ) and the commercial vehicle permit (CVP). Our plan is to establish new CVP policies in close collaboration with urban freight companies, adjacent businesses, and other critical stakeholders; implement a digital CVP built on the Curb Data Specification (CDS) that enables capture of curb utilization measurements and communicates demand management policies; and transform our legacy digital curb inventory to the national CDS standard.

Strategies

To address these challenges, SDOT proposes a SMART project that will use a combination of digital technologies coupled with targeted outreach. This approach will be implemented through three key strategies:

  1. Engage with local businesses and urban freight companies to understand challenges and build a foundation of trust SDOT will engage with a variety of stakeholders including local neighborhood businesses, commercial vehicle users from large carriers, and commercial vehicle permit (CVP) holders from small and local businesses. The goal is to build trust and work collaboratively with our users to modernize and improve our existing CVP to create a system that works for urban freight companies, local businesses, and benefits the community at large.
  2. Prototype a digital CVP and use findings to modernize and scale the system SDOT will conduct a vendor procurement to prototype and assess a wireless vehicle-to-curb infrastructure (V2I) communication system, built on top of the Curb Data Specification (CDS) standard as a new way to manage our CVP. Data collected through this prototype will be leveraged by the UFL to conduct research to develop standardized data collection efforts for commercial curb use and create new data-driven policy and permit recommendations.
  3. Collaborate with a national cohort of cities implementing the Curb Data Specification SDOT will partner with the Open Mobility Foundation (OMF) and collaborate with a national cohort of OMF member cities to support the shared objectives in how CDS can help cities and companies pilot and scale dynamic curb use. SDOT will share lessons from Stage 1 prototyping with OMF cohort cities to strengthen all CDS-related SMART grant projects and better position proven technologies to be implemented at scale for a Stage 2 project. SDOT is uniquely positioned to deliver a successful Stage 1 project focusing on commercial vehicle curb access and utilization given our existing CVP and leadership in data driven curbside management. Specifically, this project will directly address the SMART goals of equity and access, partnerships, and integration and build the foundation for dramatic improvements in safety, reliability, and climate in Stage 2. Our goal is that the Stage 1 learnings will allow us to scale a digital CVP for citywide adoption in Stage 2, thus promoting interoperability of technology solutions to improve curb access for commercial curb users citywide. Our approach centers on stakeholder and community partnerships, data-driven assessment, and technical capacity-building. Potential outcomes for testing and implementation in Stage 2 include updated policies or curb allocations that might address inequities through deeper understanding of the variety of commercial users of the curb, reduced carbon emissions by creating or incenting CV zero emission zones, and decreased impacts to vulnerable road users through optimized curb allocation.

Objectives

The expected benefits of Stage 1 will be threefold:

    1. Rigorously assess the piloted technology system to understand its scaling potential: The project will develop a technology assessment methodology that will look critically at accuracy and data use model development. This assessment will be transparent and developed in collaboration with OMF cohort cities to ensure solutions are scalable while meeting the core needs of Seattle’s digital CVP.
    2. Create a CDS framework for standardizing data collection efforts of commercial curb space: SDOT will share lessons learned from Stage 1 prototyping and policy recommendations with OMF cohort cities to collectively strengthen all CDS-related SMART grant projects and better position proven technologies to be implemented at scale.
    3. Create new data-driven commercial vehicle policy and permit recommendations to be enacted during Stage 2 of this grant

The recommendations will be informed by data models created by the UFL using utilization data from the project overlayed with characteristics of adjacent urban form and land use. These models will help SDOT identify areas for adjustments to existing curb allocation as well as establish a deeper understanding of the variety of commercial vehicle user behavior at the curb to meet climate goals. We anticipate these policies will benefit both curb users and local community members by reducing congestion and creating safer streets.

Presentation

Investigation of Private Loading Bay Operations in Seattle’s Central Business District

 
Publication: 9th International Urban Freight Conference, Long Beach, May 2022
Publication Date: 2022
Summary:

Cities need new load/unload space concepts to efficiently move freight, particularly as autonomous vehicles (both passenger and freight) become feasible. This research aims to: understand the importance of off-street commercial parking, understand how off-street facilities are managed, and determine whether off-street commercial parking is an underutilized resource for urban goods delivery.

Researchers determined the locations of commercial and residential buildings in Seattle’s Central Business District with off-street delivery infrastructure, established communication with property management or building operators, and conducted interviews regarding facility management, usage, roadblocks in design/operations, and utilization.

This research finds that overbooking of off-street space is infrequent, most facility management is done by simple tenant booking systems, buildings relying primarily on curb space notes that infrastructure and operations were hindered by municipal services — especially when connecting to alleyways.

Recommended Citation:
Griffin Donnelly and Anne Goodchild. Investigation of Private Loading Bay Operations in Seattle's Central Business District. 9th International Urban Freight Conference (INUF), Long Beach, CA May 2022.
Presentation

Can Real-Time Curb Availability Information Improve Urban Delivery Efficiency?

 
Publication: 9th International Urban Freight Conference, Long Beach, May 2022
Publication Date: 2022
Summary:

Parking cruising is a well-known phenomenon in passenger transportation, and a significant source of congestion and pollution in urban areas. While urban commercial vehicles are known to travel longer distances and to stop more frequently than passenger vehicles, little is known about their parking cruising behavior, nor how parking infrastructure affects such behavior.

In this study, we propose a simple method to quantitatively explore the parking cruising behavior of commercial vehicle drivers in urban areas using widely available GPS data, and how urban transport infrastructure impacts parking cruising times.

We apply the method to a sample of 2900 trips performed by a fleet of commercial vehicles, delivering and picking up parcels in downtown Seattle. We obtain an average estimated parking cruising time of 2.3 minutes per trip, contributing on average for 28 percent of total trip time. We also found that cruising for parking decreased as more curb-space was allocated to commercial vehicles load zones and paid parking and as more off-street parking areas were available at trip destinations, whereas it increased as more curb space was allocated to bus zone.

Recommended Citation:
Giacomo Dalla Chiara, Klaas Fiete Krutein, and Anne Goodchild (2022). Can Real-Time Curb Availability Information Improve Urban Delivery Efficiency? 9th International Urban Freight Conference (INUF), Long Beach, CA May 2022.
Technical Report

Managing Increasing Demand for Curb Space in the City of the Future

 
Download PDF  (3.42 MB)
Publication Date: 2022
Summary:

The rapid rise of on-demand transportation and e-commerce goods deliveries, as well as increased cycling rates and transit use, are increasing demand for curb space. This demand has resulted in competition among modes, failed goods deliveries, roadway and curbside congestion, and illegal parking. This research increases our understanding of existing curb usage and provides new solutions to officials, planners, and engineers responsible for managing this scarce resource in the future. The research team worked with local agencies to ensure the study’s relevance to their needs and that the results will be broadly applicable for other cities. This research supports the development of innovative curb space designs and ensures that our urban streets may operate more efficiently, safely, and reliably for both goods and people.

The research elements included conducting a thorough scan and documenting previous studies that have examined curb space management, identifying emerging urban policies developed in response to growth, reviewing existing curb management policies and regulations, developing a conceptual curb use policy framework, reviewing existing and emerging technologies that will support flexible curb space management, evaluating curb use policy frameworks by collecting curb utilization data and establishing performance metrics, and simulating curb performance under different policy frameworks.

Recommended Citation:
Chang, K., Goodchild, A., Ranjbari, A., and McCormack, E. (2022). Managing Increasing Demand for Curb Space in the City of the Future. PacTrans Final Project Report.
Technical Report

Transit Corridor Study

 
Download PDF  (6.60 MB)
Publication Date: 2021
Summary:

This study is sponsored by Amazon, Bellevue Transportation department, Challenge Seattle, King County Metro, Seattle Department of Transportation, Sound Transit, and Uber, with support from the Mobility Innovation Center at UW CoMotion.

Population and extended economic growth in many Seattle neighborhoods are driving increased demand for private car travel along with transportation services such as ridehailing and on-demand delivery. Together, these trends are adding to existing demand for loading and unloading operations throughout the city, and exacerbating traffic congestion. Anecdotal evidence indicates that passenger/delivery vehicle stops at or next to transit stops can interfere with bus operations, causing longer or more volatile delays. The increased travel times and reduced reliability further erode the attractiveness of transit to travelers. Thus, it is important to understand how transit, ridehailing, and goods delivery vehicles interact in terms of both operations and travel demand.
This project focuses on the analysis of open-source transit data to screen for locations with slow and/or unreliable bus travel times, and couple that data with interference observation, environmental, and traffic-related data to potentially predict the likely causes. We have developed tools to identify transit corridors with high levels of interference from other road users, including passenger cars, ridehailing vehicles and goods delivery vehicles. These tools are applied to transit corridors in Seattle and Bellevue, and methods have been developed to identify likely sources of interference from available data.
We drew on multiple data sources for identifying high-interference corridors in the region, including:
  • a virtual workshop with participants from beneficiary agencies and stakeholders to solicit input;
  • an online crowdsourcing survey to engage the community and gather feedback from all road users;
  • route-level ridership data from King County Metro; and
  • aggregated pick-up/drop-off data on ridehailing activities from SharedStreets.
Data was consolidated and 10 corridors were selected based on their likelihood of containing interference between buses and other road users, transit ridership levels, and stakeholder and community feedback.
In addition, we have developed a tool for identifying corridors with slow and/or unreliable bus travel times from open-source real-time transit data. We implemented a pipeline for ingesting and analyzing King County Metro’s real-time Generalized Transit Feed Specification data (GTFS-RT) at 10-second intervals. Using this pipeline, active bus coordinate and schedule adherence data has been scraped and stored to an Amazon Web Services (AWS) server since September 2020. We developed efficient methods to aggregate tracked bus locations and assign them to roadway segments, and quantified delays in terms of schedule deviation and ratio of median to free-flow speeds, among other metrics. We have developed a web based visualization tool to display this data, and it is being updated daily with aggregated performance metrics from our database.
To collect ground truth validation data along selected corridors, we implemented an online data collection tool for field observations, and recruited research assistants to observe bus operations along the study corridors and record information on bus traversals and instances of interference. This dataset is analyzed alongside the GTFS-RT data, environmental, and traffic related data to identify instances of delay and predict the likely causes.
Field data was collected for three weeks along eight of the selected corridors in March 2021, but was later paused due to depressed levels of transportation activity during the COVID-19 pandemic and the current unstable condition of travel choices and city traffic (and thus interferences). Preliminary analysis on the collected data revealed that there is not a substantial effect shown in the GTFS-RT data when a bus is interfered with; however, there were not a lot of interference observations in the collected field data. So, it remains to be seen whether the lack of an identifiable effect is due to the lack of ground truth data, lack of precision in the automatic vehicle location system, or the relatively low impact of an interference when compared to the effects of general traffic congestion, signals, and other roadway conditions. A linear regression model was also generated to determine the extent to which roadway characteristics can predict segment performance, which produced mildly predictive results.
As businesses and transit services continue to reopen, there will likely be an increase in the amount of transit interference experienced between buses and other roadway users, which will potentially allow for the gathering of more ground truth validation data. Field observations will resume in late Summer/early Fall 2021 and will continue until enough data is collected to either (1) model connections between observed interference and bus delays in the GTFS-RT data; or (2) determine whether significant delays cannot be linked to observed instances of interference in the study corridors. The GTFS-RT data scraping will continue daily, and summarized in the developed interactive visualization tool.
The major anticipated benefits of the project can be summarized as follows:
  • This work will help identify network-wide road and route segments with slow and/or unreliable bus travel times. We may also be able to identify main causes of delay in the study corridors.
  • Moreover, we expect that this work will generate reusable analytical tools that can be applied by local agencies on an ongoing basis, and by other researchers and transportation agencies in their own jurisdictions.
  • The outcomes of this work will enable identifying corridors with slow and/or unreliable bus travel times as candidates for specific countermeasures to increase transit performance, such as increased enforcement, modified curb use rules, or preferential bus or street use treatments. Targeting such countermeasures towards priority locations will result in faster and more reliable bus operations, and a more efficient transportation network at a lower cost to transit agencies.
Authors: Dr. Andisheh Ranjbari, Zack Aemmer, Borna Arabkhedri, Don MacKenzie
Paper

Curbspace Management Challenges and Opportunities from Public and Private Sector Perspectives

 
Download PDF  (1.28 MB)
Publication: Transportation Research Record: Journal of the Transportation Research Board
Publication Date: 2021
Summary:

Through structured interviews with public agency and private company staff and a review of existing pilot project evaluations and curb management guidelines, this study surveys contemporary approaches to curb space management in 14 U.S. cities and documents the challenges and opportunities associated with them. A total of 17 public agencies (including public works departments, transportation agencies, and metropolitan planning organizations) in every census region of the U.S. and 10 technology companies were interviewed.

The results show that the top curb management concerns among public officials are enforcement and communication, data collection and management, and interagency coordination. Interviewees reported success with policies such as allocating zones for passenger pick-ups and drop-offs, incentives for off-peak delivery, and requiring data sharing in exchange for reservable or additional curb spaces. Technology company representatives discussed new tools and technologies for curb management, including smart parking reservation systems, occupancy sensors and cameras, and automated enforcement. Both public and private sector staff expressed a desire for citywide policy goals around curb management, more consistent curb regulations across jurisdictions, and a common data standard for encoding curb information.

Recommended Citation:
Diehl, C., Ranjbari, A., & Goodchild, A. (2021). Curbspace Management Challenges and Opportunities from Public and Private Sector Perspectives. Transportation Research Record. https://doi.org/10.1177/03611981211027156