Report to Darebin Council on freight in context of Victoria's freight strategy

COUNCIL MEETING REPORTS 15 MARCH 2010
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1. LARGE TRUCK MOVEMENTS ON LOCAL ROADS AND
THE EFFECTS OF VICTORIA’S FREIGHT STRATEGY,
FREIGHT FUTURES, ON DAREBIN <A755009>
AUTHOR: Wal Cichocki - Senior Transport Engineer
MANAGER: Nick Mazzarella - Manager Transport Management and Planning
BUDGET
IMPLICATIONS: nil
SUMMARY:
This report consolidates two Council requests for reports on matters related to freight in Darebin. It
summarises the issues related to commercial goods transport vehicles on roads in Darebin and
considers implications on Darebin of the Freight Futures, the Victorian freight strategy.
CONSULTATION:
- Municipal Association of Victoria (MAV)
- Victorian Road Freight Advisory Council (VFAC)
- Victorian Freight and Logistics Council (VFLC)
- National Transport Commission (NTC)
- VicRoads
- Visy Logistics (Clayton)
- City of Yarra
- City of Moreland
- City of Banyule
- City of Whittlesea
RECOMMENDATIONS
That:
1. Council note this report.
2. Council, in facilitating safe and efficient movement of freight in Darebin, support
Freight Futures – the Victorian freight strategy.
3. Council continue discussions with VicRoads and stakeholders in relation to obtaining
support in implementing the Freight Futures action plans, in particular:
a. Assessment of local roads for suitability of freight access.
b. Funding of measures to address possible impacts on local roads and related
infrastructure.
4. Council write to Municipal Association of Victoria:
a. In support of the national transport reform and the introduction of SMART,
Higher Productivity Vehicles (HPV), subject to:
i. Council retaining control over the heavy vehicle access on Darebin’s
local roads network.
ii. Formation of an agency to inform and assist Council with specific
freight related matters.

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iii. Establishment of a compliance framework to ensure heavy vehicles
only travel on approved roads.
b. In support of the introduction of the new road classification system based on
Performance Based Standards, subject to securing government commitment
for funding to assist local Councils with related improvements to local roads.
c. In support of a need for nominating an agency to collate information and
maintain a central database on heavy vehicle access.
5. Council commence community information and engagement campaign on issues
related to freight, with publishing of adequate brochures and introducing in Darebin
News a regular section dedicated to freight.
6. Council develop a comprehensive strategy for managing freight in Darebin.
REPORT
Background
Implications Of State Government Freight Strategy For Darebin
At the 16 March 2009 Council meeting, it was resolved that:
‘Council officers report back to Council on the implications on Darebin of the recently
released State Government Freight Strategy. The report should also consider the suitability of
large truck movements, such as B-double trucks on Council’s local road network.’
Council was provided a preliminary briefing on Freight Futures on 10 August 2009, and this
report will provide further details as requested.
Proposed Code Of Conduct For Owners And Drivers Of Heavy Vehicles In The North West
Reservoir Area
At the 6 April 2009 Council meeting, it was resolved that:
‘(1) Council write to Visy and other local ‘end users’ of B-Double permits in Reservoir to
seek their views on the development of a ‘code of conduct’ for their drivers and their
contractors who are using B-Double trucks.
(2) Council officers submit a report on how local residents in the affected area of north-
west Reservoir can be surveyed on their views regarding a ‘code of conduct’ in
relation to the use B-Doubles in the area, eg. householder letter or insert in ‘Darebin
News’.
This report will respond to these items.
Local Area Traffic Management Study
At the 15 June 2009 Council meeting, it was resolved that:
Council officers report back to Council in relation to conducting a new Local Area Traffic
Management study between Massey Avenue, Broadhurst Avenue and High Street and
Mahoneys Road given the increased use of these and surrounding streets for trucks and other
speeding traffic avoiding High Street.

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Although this request is related to freight in Darebin, it will be responded to in a separate but related
report.
Core Issues
Implications Of State Government Freight Strategy For Darebin
Due to the population and economic growth and increasing consumer expectations, the freight task is
rapidly expanding across Australia and overseas. It is estimated, that the number of tonnes of freight
moving around Melbourne by road will double by 2030 from today’s levels. Figure 1 below shows
the projected increase of road share in the Australian domestic freight task.
Figure 1. Australian domestic freight task forecast (source: Bureau of Transport and Regional Economics)
Heavy road vehicles are currently the only transport mode that offers flexible door-to-door service
capable of handling small shipment sizes. Considering the above, the impact of freight growth is
likely to be the greatest in urban areas, where majority of roads are managed by the local government.
Industry and governments respond to the growing freight task in a variety of ways that include
research on smart technologies, development of adequate operational improvements, action plans and
policies, regulating and legislation. Examples include:
• Encouraging operators to participate in the National Heavy Vehicle Accreditation Scheme
(NHVAS) to secure industry’s compliance with safety standards and procedural requirements.
• Research and development towards matching heavy vehicles to road and to safe and efficient
operations under the Performance Based Standards (PBS) scheme.

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• Developing ‘smarter’ vehicles capable of taking more load and manoeuvring around difficult
roads with less impact on local amenity and the environment.
• Introducing a new road classification scheme (access Levels 1 to 4) to accommodate changing
truck profiles.
• Conveying responsibility for managing the growing freight task to all stakeholders (‘Chain of
responsibility’).
• Responsible management of freight movements and development of ‘codes of conduct’ for
freight operators to match with the ‘Safe System’.
• Developments in freight related technology, e.g. interactive map portals for drivers for
advance journey planning, or intelligent access programs (IAP) to monitor compliance with
permit systems.
• Review of freight charges (e.g. ‘incremental pricing’) to secure freight industry’s
contributions towards compensating for ‘wear and tear’ of roads.
• Consultation and exchange of information with community and stakeholders (e.g. ‘Freight
Weeks’ and forums coordinated by Victorian Road Freight Advisory Council).
• Mass management compliance
• Fatigue Management Legislation
• Eco driver training and emission control
• Legislating towards national consistency of freight.
Further details of these actions are provided in Appendix C.
Freight Futures
Freight Futures is a Victorian transport plan that seeks, through a number of goals, objectives and
priorities, to respond to freight challenges by the planning, delivery and management of Victoria’s
principal freight network. The key goals, objectives and priorities of Freight Futures include:
• To ensure availability of sufficient capacity of the freight network while maintaining its
efficiency and sustainability.
• To facilitate efficient movement of freight by reducing the costs and improving reliability.
• To deal with and manage any adverse impacts.
• To optimise the integration and use of infrastructure.
• To improve regulatory arrangements.
• To manage community and environmental impacts to mitigate the negative effects of freight
growth.
In responding to challenges and addressing the three key goals: efficiency, capacity and sustainability,
Freight Futures sets out 20 strategic directions.
The following Table lists all these directions and indicates their effects on Darebin:

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Table 1. Strategic directions from Victorian road freight strategy, Freight Futures, and their likely
impacts on Darebin.
Direction Major/
direct
Intermediate Minor or
no effect
Direction 1: Identify and develop a Principal Freight
Network for Victoria
Direction 2: Identify and develop Freight Activity Centres
Direction 3: Plan and protect future freight corridors and
activity centres
Direction 4: Plan and develop a Metropolitan Freight
Terminal Network
Direction 5: Plan for growth in regional freight
Direction 6: Improve planning for the ‘last kilometre’ of
freight journeys
Direction 7: Invest in the Principal Freight Network –
Roads
Direction 8: Invest in the network and trial next generation
High Productivity Freight Vehicles (HPFV’s)
Direction 9: Revitalise the Principal Freight Network – Rail
Direction 10: Enhance commercial port efficiency, capacity
and integration
Direction 11: Alleviate the impact of truck movements in
Melbourne’s inner west
Direction 12: Support increased take up of information and
communications technology
Direction 13: Maximise efficient use of the Principal
Freight Network
Direction 14: Minimise the amenity, environmental and
Climate change impact of freight transport
Direction 15: Enhance the safety and security of freight
transport
Direction 16: Undertake regulatory reform and reduce the
regulatory burden
Direction 17: Implement improved governance
arrangements for ports
Direction 18: Establish governance arrangements for the
Metropolitan Freight Terminals Network
Direction 19: Actively manage access for vehicles carrying
over-dimensional loads
Direction 20: Implement a new freight data collection and
analysis capability
The most applicable directions to Darebin are:

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- Direction 6: Improve planning for the ‘last kilometre’ of freight journeys
o The Municipal Association of Victoria is coordinating discussions between
stakeholders on ways of managing freight access to local roads. This is to assist the
local government with the planning for the ‘last kilometre of freight travel’ and
developing measures to address the adverse effects of expanding freight access. A
proposal for gazettal of only these roads, which would be accessible by freight subject
to permit, is currently being considered by the industry. Technical reports do not see
the increased loads on road pavement as a significant issue. However assessment of
Darebin roads and related infrastructure for improvements such as pavement
strengthening or modifications to traffic management devices may be necessary.
o One way of easing daytime on-road congestion currently explored by commercial
operators is extending activities into evening hours. This is likely to increase the ‘after
hours’ presence of trucks on local roads with adverse effects on residential amenity.
New, quiet advanced heavy vehicles are being developed to tackle these effects.
o Some statutory changes to Darebin Planning Scheme may be required following
advice from the state. This is to protect the future freight corridors and to ensure that
the land use and development decisions in these areas contribute to the objectives of
Freight Futures. For example, freight access to activity centres and commercial zones
may need to be reviewed.
- Direction 15: Enhance the safety and security of freight transport
o Various road and vehicle safety schemes supported by intelligent technologies are
being developed and implemented by the industry to enhance safety and security.
Under its role in the chain of responsibility, Darebin Council will need to contribute to
enhancing the on-road safety for freight transport by providing road environment that
reduces safety risks, hazards and obstacles and minimises driver fatigue. Adherence to
recommended road safety standards in the planning, design, maintenance and other
related activities will continue to play important role. Council will need to consider, to
a greater degree, the requirements of freight in its relevant corporate strategies,
policies and guidelines and improve community and corporate awareness about the
freight safety issues. Cooperation with regulatory bodies and industry on safer
vehicles, safer travel and safer roads need to continue within the framework of the
arrive alive! Victorian Road Safety Strategy and the forthcoming National Road
Safety Strategy. Broad application of the Intelligent Transportation Systems (ITS)
schemes such as the Intelligent Access Program (IAP) will contribute to ensuring
industry’s compliance with requirements for safe and efficient progression of freight
on our roads. Council, subject to further advice, may wish to consider IAP as a
condition of access in future assessments of freight applications.
- Direction 19: Actively manage access for vehicles carrying over-dimensional loads
o Council follows relevant guidelines in assessment of oversized loads vehicles, special
purpose vehicles and cranes. Assessments involve on site visits, inventory of
infrastructure condition and evaluation of the ‘road envelope’. Council may be
required to adjust its procedures and processing methods subject to introduction of the
new guidelines. New requirements may have effect on demand for time and resources.
It may be necessary to consider introduction of assessment processing fees.

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The strategic directions of Freight Futures and emerging issues are likely to have an effect on many
service units at the City of Darebin such as Transport Management and Planning, Asset Strategy,
Roads Infrastructure, Strategic and Statutory Planning, Amenity and Enforcement and Capital Works
Management.
Council will need to participate in the on-road space and access time management schemes to improve
road use efficiency. Statutory planning, development and land use decisions will need to contribute to
the objectives of Freight Futures.
Industry may expect Council’s assistance with implementation of smart vehicle tracking technologies
or testing of hybrid vehicles on local roads. Council may also need to contribute to the freight network
data collection systems to assist authorities with development of a comprehensive freight database.
VicRoads and industry will expect Council’s contribution to the reviewing and classifying freight
corridors, hubs, activity centres and planning precincts and their inter-connections in supporting the
Metropolitan Freight Network.
Future development of the interstate rail terminal at Donnybrook/Beveridge is likely to add freight
trips to the Darebin’s road network (Appendix A). Consolidation of major freight activities to a
limited number of corridors and hubs (Altona/Laverton, Somerton and Dandenong) is likely to result
in greater concentration of freight movements along the principal corridors, north-south in particular.
It could have a positive effect on reducing growth in truck traffic on these roads in Darebin that
provide for local access. However it is more likely to result in net increase of the overall number of
heavy vehicles in Darebin. High numbers of B-doubles, larger rigid and oversize vehicles (largest
trucks, defined as Class 10 and over, see Appendix D) will most likely seek to travel on Darebin
roads. This is likely to increase demand for road maintenance and traffic management.
The resulting growing demand for freight assessments is likely to be gradually compensated by
progress towards national consistency of the freight industry.
Improvements in the vehicle and related technologies, in work practices, implementation of intelligent
transport systems, improved compliance following conscious participation in ‘codes of conduct’,
better cooperation of stakeholders within the ‘chain of responsibilities’ and better understanding of
freight by the community are expected to contribute to improving freight related on-road safety.
On balance, the Freight Futures will have positive wide-spread effects on a range of activities in
Darebin. By adopting directions and relevant actions of the Freight Futures, Darebin will contribute
to the overall enhancement of transport efficiency and therefore savings in freight costs which will
translate to cheaper consumer goods and better perception of freight by the community.
The summary of effects of Freight Futures on Darebin and actions that may be required is provided in
the following Table:

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Table 2. Summary of selected effects of Freight Futures on Darebin and possible required actions.
STAKE-
HOLDER
EFFECTS ACTIONS
WITHIN COUNCIL
Transport
Management
and Planning
Efficiency of freight network.
Consistency of freight corridors and
freight activity centres with the road
classification.
Coordinated management of freight
access.
Compliance with Freight Futures
directions.
Participate in evaluating freight corridors and activity
centres.
Contribute to Victorian ‘best practice’ manual for
‘last kilometre’ freight delivery solutions.
Assess access to road network for heavy vehicles.
Assess short connection property access.
Strategic and
Statutory
Planning
Coordinated planning for freight access.
Land use activities compatible with freight
network.
Enhanced development opportunities.
Review of Victoria Planning Provisions.
Assist state with evaluating and forward planning for
freight corridors and activity centres.
Apply reviewed principles in day-to-day activities.
Asset Strategy Compliant use.
Accessible network of roads, bridges and
structures.
Integrity and protection of assets.
Assist with establishing freight accessible road
network.
Site inspections, inventory of freight related assets
Seek funding for local roads upgrades.
Roads
Infrastructure
Likely increase in demand for maintenance
of local roads.
Site inspections, reporting, repairs.
Amenity and
Enforcement
Likely increase in demand for assessments
compensated by network improvements.
Condition inspections, recording, reporting,
enforcement.
Capital Works
Management
Demand for design of improvements on
local roads to accommodate freight.
Design and implement.
Sustainability
Unit
Consideration of freight issues in all
projects and activities.
Support trialling of environmentally sustainable
freight vehicles on local roads.
EXTERNAL
Local freight
operators
Cost savings, better efficiency.
‘Smarter’, more commodious vehicles.
Better compliance with requirements and
rules.
Enhanced investment opportunities.
Review of technical conditions checks.
Participation in freight efficiency and ‘code of
conduct’ schemes.
Better loading and maintenance regimes.
Regular training, alerts, briefings.
Local traders Greater variety of merchandise.
Faster, more efficient deliveries.
Enhanced investment opportunities.
More direct access by deliveries.
Eliminating transfers between transport modes.
Local
community
Cheaper fresher goods, better variety,
faster deliveries.
Reduced individual car travel.
Improved perception of freight.
Participating in forums and focus groups.
Assistance with freight monitoring.
Exchange of information on freight issues.
Other Improved road safety.
Economic savings.
Slower growth in congestion and
greenhouse gases emissions.
Research and development in intelligent
transportation systems.
More commodious, road fitting SMART trucks.
Legislation, regulations and agreements.
Putting more freight on fewer vehicles.
More details on industry’s response to the growing freight task are provided in Appendix D.

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Suitability of large truck movements, such as B-double trucks on Darebin’s local road network.
At the 16 March 2009 Council meeting, it was resolved that:
‘The report should also consider the suitability of large truck movements, such as B-double
trucks on Council’s local road network.’
Movements of large trucks that deliver necessary consumer goods to a whole range of local
destinations are considered vital for the economic growth of Darebin and the wellbeing of its
community. However, currently, the increasing freight activities fall short of meeting the community
expectations with respect of residential amenity.
Initiatives exist for a dialogue to improve mutual understanding between freight industry and
community, however more can be done.
Research shows, that adverse effects of presence of large, high productivity vehicles on local streets
can be minimised by a variety of methods that rely on understanding and intelligent management of
freight. Putting more freight on commodious, ‘road friendly’ vehicles operating under efficiency
enhancement schemes within the ‘Safe System’ such as Performance Based Standards (PBS) would
assist in reducing the increase in road congestion and exposure to crashes (Reference 12).
Many benefits of distributing larger quantities of goods by fewer vehicles include impediment in
growth of road congestion, economic savings and lower prices of goods due to less fuel used per unit
of freight and environmental gains expressed in reduced greenhouse gas emissions. Efforts continue to
make freight vehicles ‘smarter’, more efficient, environmentally friendly, quieter and safer.
The national crash data published by the Australian Government, Department of Infrastructure,
Transport, Regional Development and Local Government indicates, that in March 2009, the 3 year
trend in fatalities involving articulated trucks on Australian roads was dropping (-3.4% p.a.) compared
with increasing trend in fatalities involving heavy rigid trucks (+8.0% p.a.). The safety aspect and the
positive effect on moderating the increase in traffic congestion indicate that the presence of B-doubles
and the high productivity vehicles on residential streets will have relatively lesser adverse effect on
residential amenity and road safety compared with this of traditional rigid trucks (Reference 20,
Appendix G). There were few reported crashes involving trucks in Darebin. It is considered that the
controlled, orderly and safe progress of larger and ‘smarter’ freight vehicles on Darebin’s roads should
be supported. Council should retain the right to control the access to local roads.
In January 2008, Vic Roads approached Council officers to confirm a proposal to list in the
Government Gazette local roads selected as accessible to B-doubles and vehicles operating under the
National Higher Mass Limits Accreditation Scheme.
Officers assessed the VicRoads proposal and agreed to gazettal of Fulham Road, between Darebin
Road and Chingford Street, Montefiore Street, Plateau Road, Newlands Road (Darebin part), Radford
Road between Edwardes Street and Vickers Street, Edwardes Street, between Radford Road and
Plateau Road. These roads are located in industrial zones and are typically used by heavy vehicles.
The gazettal of the section of Edwardes Street Road that traverses the Reservoir civic centre was not
supported. It is preferred that Council, at this stage, maintain control over heavy freight access in this
area.

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Code Of Conduct For Owners And Drivers Of Heavy Vehicles In The North West Reservoir
Area
At the 6 April 2009 Council meeting it was resolved that:
‘(1) Council write to Visy and other local ‘end users’ of B-Double permits in Reservoir to seek
their views on the development of a ‘code of conduct’ for their drivers and their contractors
who are using B-Double trucks.
A Code of Conduct is an agreement that clarifies the standards of behaviour that are expected of staff
in the performance of their duties. It gives guidance in areas where employees need to make personal
and ethical decisions.
In early 2008, Codes of Conduct for professional drivers and transport industry operators were agreed
to and signed by the Victorian Transport Association (VTA) and Transport Workers Union (TWU)
(Appendix B). The Codes, under the ‘Chain of responsibility’ concept and the Occupational Health
and Safety (OH&S) legislation, require that appropriate systems are in place within the freight
industry to manage risks related to operation of transport vehicles. Operators and drivers participate in
the scheme on voluntary basis.
Visy Logistics operates the freight services for all Visy outlets including Reservoir. In April and
December 2009 officers wrote to Visy Logistics to seek comments on the Code. During the recent
meeting held in December 2009 at the Visy Logistics office situated in Clayton, the Code and its
impacts were discussed. The following information was obtained:
Visy Logistics fully support the Code. Visy operate their own fleet of heavy vehicles and follow an
individual, specific Code of Conduct which was developed for internal use, in accordance with the
industry’s (VTA & TWU) Code. Its focus is on load restraints and on ensuring that safety audits,
OH&S meetings, training and briefings of drivers occur regularly. Weekly alerts are distributed to
branches and drivers to provide updates on requirements and issues of concern.
The extent of the comment on the Code from other businesses in Reservoir area was limited as they
are generally serviced by a variety of non-local and interstate individual operators. However the
following has been established:
The industry, in general, appears to be well aware of the Code and of the requirements to operate
freight efficiently and safely. Both drivers and operators are responsible for adherence to the Code.
However little information is available about enforcement mechanisms within individual operators.
Generally Unions have the power to act on disregard of the Code by individual drivers. VicRoads and
Victoria police issue fines for traffic offences or faulty vehicles. Council can issue notices for parking
related offences.
Codes of conduct may vary between operators but they are consistent with the broad principles in the
industry’s model Code.
It is Officers’ opinion that the Codes encourage responsible driving and improve community’s
perception of trucks however there are indications that currently, adherence - particularly in the small
individual operators’ category - is less than desirable.

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At the 6 April 2009 Council meeting it was also resolved that:
(2) Council officers submit a report on how local residents in the affected area of north-west
Reservoir can be surveyed on their views regarding a ‘code of conduct’ in relation to the use
B-Doubles in the area, eg. householder letter or insert in ‘Darebin News’.
There are indications that, currently the perception of freight industry within some groups in the
community is poor. While the transport industry’s codes of conduct play important role in improving
this perception, it is believed that further exchange of information between Council, the community
and industry is necessary.
A good way of informing and regularly updating Darebin’s community about the freight issues is to
introduce a regular feature dedicated to freight in Council’s newsletter - Darebin News. This will
provide Council with a tool for communicating to the community information related to freight and
improving widespread understanding of the complex freight issues. It is important to seek community
feedback on specific topics. Broad coverage of the newsletter in all three Wards would enable Council
to collect comprehensive information and produce a database of issues that could be considered either
in-house or forwarded to the stakeholders for consideration.
Visy expressed willingness to contribute to the dialogue between the freight industry and Darebin
community.
Specific freight concerns can also be discussed during meetings of local focus groups to which
representatives from the industry and relevant authorities can be invited.
Approaching local individuals and letter drop are considered less efficient ways of consultation, due to
the limited target population and a risk of straying away from the significant issues.
DISCUSSION
In its discussion paper ‘Higher Productivity Vehicles’ (Reference 2), MAV recommends that local
councils support local freight access to service the first and the last kilometre of the journey.
Due to Darebin’s central positioning in the metropolitan road network (Appendix A), the impact of
freight on its roads is likely to be significant, despite the absence of major freight hubs within the
municipal boundaries.
Compliance and enforcement
Currently large vehicles up to a B-double size may travel without permit on declared main roads and
gazetted local roads only. Freight permits are issued by VicRoads subject to prior assessment by
Council. VicRoads enforce heavy transport laws.
Recent traffic study in the West Reservoir Area indicates discrepancies between the numbers of
observed B-doubles on some roads and the numbers of Council assessments. This is indicative of poor
compliance with the permit system and raises concerns about impacts on Darebin’s residential amenity
and local roads infrastructure.
In response to Council’s enquiry, VicRoads Transport Safety Services, in a letter dated 22 July 2009
advised that 72 motor vehicles were intercepted in the Reservoir area between 21 May and 30 June
2009. A total of 13 traffic infringement notices and 48 defect notices were issued in the same period.
No further details were provided, but figures confirm a considerable number of infringements. There
were no indications of breaches of the posted speed limits reported on these days.

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Victoria police advised that they normally do not enforce freight permits, but rather focus on ensuring
compliance with the general road safety regulations.
Freight regulators and the industry continue to develop and implement a range of concepts in freight
operations to improve operation and the image of freight. Currently the whole freight sector in
Australia undertakes a major reform to ensure national uniformity. It is believed, over the coming
years the consistency in compliance of freight with the local regulations will continue improving while
differences between states disappear.
Involving the local community would assist with monitoring of freight and detecting non compliance.
All members of the public can now report offending vehicles, however lack of awareness and ability
to reliably recognise offending vehicles is a barrier.
Community engagement would add value to the monitoring of heavy vehicles and to improving the
mutual understanding.
A 1999 Freight Study in Darebin
In 1999, during the development of the Darebin Transport Strategy, a transport consultant, Turnbull
Fenner Pty Ltd, carried out a comprehensive freight movement study in Darebin. Results showed that
the majority of predominantly rigid trucks (69%) and semi trailers (27%) operated during the four
hours between the traffic peak times. The majority of trips were local (within the municipality) and
the prevailing starting trip point was a transport company, followed by the store, warehouse or factory
with the maximum of 30 trips made by a single vehicle and the majority of drivers making less than 5
trips per day. The summary of the study is provided in Appendix E. No similar study was carried out
in Darebin since that date.
A need for a freight strategy in Darebin
Freight vehicles are vital for the economic sustainability and prosperity of Darebin and need to be
accommodated capably within the road network. Council therefore needs to focus on strategies to
manage the growing freight task.
The freight logistics and its evolving impacts on local amenity and environment are complex issues
that require well structured, coordinated and strategic approach. Regular adjustments and reviews are
required. At present, neither Darebin, nor any surrounding municipality has any dedicated policy with
focus on freight. The management of transport of goods is guided by the current transport strategies
where freight is generally not a prime focal point.
It is suggested, that Council consider development of a municipal freight strategy, which will provide
a freight targeted framework, to guide City of Darebin in decision making throughout the future years
to come.
Such strategy would need to be consistent with the Freight Futures, the Victorian Transport Plan and
the National Transport Reform. It needs to be in line with the Darebin Transport Strategy, the freight
related recommendations of Municipal Association of Victoria and the related VicRoads strategies and
programs. It should aim at enhancing benefits to Darebin and its communities, those of the adjacent
municipalities and the industry.
The MAV indicates, that announcement on the federal budget, to address likely implications of the
growing freight task, is likely to be made in mid 2010. Improvements to the road infrastructure and
development of adequate freight management plans are included in this category.

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POLICY IMPLICATIONS
Environmental Sustainability
Movement of freight is usually linked with noise, vibrations, greenhouse gas emissions and occasional
physical damage to the road related infrastructure. To arrest the predicted rapid growth of truck trips
and related emissions due to resulting traffic congestion, Council will need to support the development
of ‘smarter’, quieter and more fuel efficient vehicles with better load carrying capacity.
The recommendations of this report contribute to minimising adverse environmental effects and
support:
• the moderating of the projected growth in the numbers of heavy vehicles, thus reducing increase
in road congestion,
• optimising travel distance, thus minimising fuel consumption,
• reducing greenhouse gases emissions by improving the road environment and minimising the
number of stops (as stopping a vehicle and starting from a stop or low speed position contributes
most to the pollution),
• promoting SMART (high capacity, electrical-hybrid, quiet, manoeuvrable) vehicle technology
for better fuel efficiency and preservation of environment and residential amenity
• reducing reliance on individual car by goods reaching their destinations directly
Social Inclusion and Diversity
Access to goods and services is considered essential for the wellbeing of the Community including
disadvantaged people. Such access will be enhanced with the greater variety of goods reaching
increased range of destinations by freight being able to efficiently service the last kilometre of travel.
Freight is associated with a variety of social impacts related to perception of safety, noise, vibrations,
etc. This report encourages development of measures that minimise adverse social impacts of freight
and enhance community involvement in developing measures assisting the control of freight in
Darebin. Examples include restraining the increase in numbers of heavy trucks on our roads and
promoting development of more appealing, quiet vehicles that make roads more ‘pedestrian friendly’.
Darebin Transport Strategy 2007-27 (DTS)
Darebin’s Transport Strategy 2007-2027 states:
“Trucks are (…) fundamental to the economic viability of local businesses. Positive provision
needs to be made for commercial vehicle serving of local centres and employment areas.
…goods access must be maintained by the most appropriate means, even though this may
sometimes adversely affect the amenity of surrounding streets.”
Policy P13 of DTS states:
“Road space will be managed to give priority to sustainable modes”
DTS promotes movement of people and goods rather than vehicles alone. Generally DTS supports
progress of freight mainly on designated strategic corridors and is consistent with Freight Futures.
However, without appropriate access provided for freight access to individual destinations, the service

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to the community would be limited and trips by individuals to and from the goods distribution outlets
would continue to add to congestion.
One of the key concepts in DTS is “Local Living”. Better accessibility for freight to service the ‘last
kilometre’ of travel will enhance this concept and contribute to reduction of local trips made by
individuals to local supermarkets.
The DTS supports sustainable movement of persons and goods on the preferred traffic routes. This
report, in addition to recommending channelling the bulk freight into agreed corridors, supports direct
freight access to end destinations of travel. Such access needs to occur in accordance with the freight
control mechanisms agreed to by stakeholders. The contents of this report and the recommendations
are consistent with the guiding principles of the DTS.
Financial Implications
Assessment of improvements to roads and road related infrastructure necessary to handle the
increasing freight task is a major effort which Council has no allocated resources to meet. Federal
funds are likely to become available in near future to assist local government with meeting this task.
The development of freight strategy for Darebin could require approximately $50,000.
Future Actions
1. Council needs to continue discussions with stakeholders including VicRoads, Victorian Road
Freight Advisory Council, Victoria Police and Municipal Association of Victoria with the aim
of minimising adverse effects of freight operations on Darebin. Discussions to contain:
a. any strategies and programs aiming at addressing issues related to the growing freight
task that minimising adverse impacts on the local community,
b. assistance with assessment of Council road assets for improvements for freight access
and with possible development of freight related strategies,
c. resolution of the over dimensional route OD1 which is currently traversing the High
Street civic centre and a level crossing with low overhead high voltage track cables
over the road (Figure 2).
2. General agreement on gazettal of Darebin Roads for freight access is required, the following
to be considered in such agreement:
a. minimum impact on residential amenity and road infrastructure,
b. safety and ease of access by freight to service ‘the last kilometre of travel’,
c. minimising administrative task for Council, road authorities and industry,
d. Council adequately compensated for adverse effects
3. Council, with VicRoads and other stakeholders, ensure adequate monitoring of freight
movements on local roads in Darebin and explore further options for community involvement.
4. Council consider developing and introducing suitable community engagement and education
programs to assist with dealing with freight issues (B-doubles) on local roads. As a starting
point it is suggested, that information on freight be developed and distributed. This to include:
a. broad introduction to freight
b. outline importance of presence of freight on local roads
c. what is permitted and what is not
d. practical ways of recognising and classifying heavy vehicles
e. appropriate ways of reporting suspected vehicles
5. Council review the regulatory truck bans and load limits in Darebin. Also roads and related
infrastructure needs to be assessed with the view of seeking funding for necessary upgrades.
6. Council consider developing a freight strategy for Darebin.

Page 15
Figure 2. Current and possible over dimensional OD1 route

Page 16
References/Related Documents
1. Freight Futures – Victorian Freight Network Strategy (Department of Transport 2008)
2. Discussion Paper - Higher Productivity Vehicles (MAV March 2009)
3. The Victorian Transport Plan (The VTP)
4. Towards an Integrated and Sustainable Transport Future – a new legislative framework for
transport in Victoria (Victorian Government Discussion Paper – Melbourne, October 2007)
5. Darebin Transport Strategy 2007-27 (City of Darebin)
6. Victorian Bus & Truck Drivers Handbook – VicRoads, March 2009 (VicRoads Publication
Number 00123/10)
7. Annual Report 2009 – National Transport Commission
8. Transport Demand Information Atlas for Victoria 2008 (Vol.1 – Melbourne) – Department of
Transport (ISBN: 0-7311-8756-3, ISBN13: 978-0-7311-8756-0)
9. Guidelines for Next Generation High Productivity Freight Vehicle Trial in Victoria –
VicRoads September 2009
10. Council Officer Report on LATM study in West Reservoir in relation to trucks (A788454)
11. Melbourne Integrated Transport Model & Freight Movement Model (DoI – Policy &
Intergovernmental Relations Division Infrastructure Economics & Modelling – August 2007)
12. Performance Based Standards Scheme Review - NTC, July 2009
13. Council’s letter of 7 July 2009 to VicRoads Transport Safety Services, (Ref. A736245)
14. VicRoads Transport Safety Services letter dated 22 July 2009 with information about
enforcement (Ref. A745977).
15. Heavy Vehicle Speed Compliance: Review Of Regulatory Approaches, Discussion Paper
NTC 2005
16. A Quick Guide To Heavy Vehicle Charges - NTC Factsheet, February 2008
17. Incremental Pricing For Heavy Vehicles, Summary Paper – NTC October 2004
18. SUBMISSION Incremental Pricing Feasibility Review by the National Transport Commission
– ATA March 2009
19. 'Victoria's Local Roads: critical links in the national supply chain' – MAV, October 2009
20. Fatal heavy vehicle crashes Australia - Quarterly Bulletin January-March 2009, Department
of Infrastructure, Transport, Regional Development and Local Government
21. Freight Movement Questionnaire Survey in Darebin – Turnbull Fenner Pty Ltd, July 1999
22. Darebin Freight Movement Investigation Survey – Turnbull Fenner Pty Ltd, July 1999 (Ref.
1997R4940)
23. VicRoads website: http://www.vicroads.vic.gov.au
24. ABS census
25. The Fair Work Act 2009
26. National Transport Commission (Model Act on Heavy Vehicle Speeding Compliance)
Regulations 2008 -
http://www.comlaw.gov.au/ComLaw/Legislation/LegislativeInstrument1.nsf/0/F313D7620E5
CD25CCA2574880006242F/$file/0810668A-080515EV.doc
27. VicRoads website for Heavy Vehicle Maps:
http://maps.vicroads.vic.gov.au/website/Heavy_Vehicles/viewer.htm
28. Implications of Mass Limits Review Recommendations for Local Roads – Working Paper No.
23, National Road Transport Commission May 1999
29. Investing in Transport - Sir Eddington’s Report

Page 17
APPENDIX A. Positioning of Darebin in the Melbourne metropolitan and regional
freight system (source: Freight Futures)
Example: the manufacturing freight movement into Melbourne (2006 am peak)
(Source: Melbourne Integrated Transport Model & Freight Movement Model DoI).

Page 18
APPENDIX B. - Codes of Conduct for freight industry (operator and driver)

Page 19

Page 20
APPENDIX C - Ways the government and industry respond to growing transport concerns
• National Transport Policy – National ministers agreed to begin a program of national reform to address
major challenges including climate change, safety, efficiency, congestion, and the skills crisis. Individual
Ministers took responsibility for developing aspects of a national transport policy.
• The Chain of Responsibility - The ‘Chain of Responsibility’ means that anyone, who uses road transport as
part of their business, shares responsibility for ensuring breaches of road laws do not occur. Local government
in its role in the chain is responsible for roads infrastructure.
• The National Heavy Vehicle Accreditation Scheme (NHVAS) - The NHVAS assists heavy vehicle
operators with complying with the requirements related to vehicle mass and maintenance. The benefits include
improved freight productivity and efficiency and compliance with road safety standards.
• Performance Base Standards (PBS) – The Performance Based Standards system reform “matches the right
vehicles to the right roads” and encourages innovations in vehicle design for improved productivity, safer
performance and reduced impact on roads infrastructure. PBS focus is on how well vehicle fits the road
enhancing safer operation.
• Safer Management of Australian Road Transport (SMART) and Higher Productivity Vehicles (HPV’s)
– SMART term is applied to vehicles under the Performance Based Standards (PBS). They can traverse both
long distances and narrow local roads and carry maximum load to reduce truck numbers and fuel consumption.
• New road classification to accommodate changing trucks profiles - A new road classification that meets
the new network classification guidelines. The four new route network Levels, L1 to L4 align with the existing
Restricted Access Vehicles (RAV) classifications as follows:
Network Access by Vehicle Length, L (m)
Road Class SMART heavy
vehicle level
Close present vehicle
description
Class “A” Class “B”
Level 1 access (L1) 1 From passenger car to
single articulated heavy
vehicle
L<= 20 (General Access*)
Level 2 access (L2) 2 B-Double L <= 26 26 < L <= 30
Level 3 access (L3) 3 B-Triple L <= 36.5 36.5 < L <= 42
Level 4 access (L4) 4 Triple road train L <= 53.5 53.5 < L <= 60
• General access is subject to a 50 tonne gross mass limit and posted local restrictions
Council’s local roads would normally be classified as L1 - general access - available to standard heavy
vehicles. Council would continue assessment for over dimensional vehicles to access local roads under the L2
category.
• Freight Charges – Charges have been reviewed to ensure a fairer contribution of freight, proportional to load
capacity rather than a vehicle unit for recovery of road maintenance related costs.
• Technology, Intelligent Transport Systems, etc – Latest technology to assist operators with demanding
freight task is applied by leading operators and gradually expanding across the sector. Systems such as
Intelligent Access Program (IAP - vehicle tracking) are gradually implemented adding to better management
of freight task and national consistency.
• Freight Weeks and Forums - Each year Victorian Road Freight Advisory Council holds a series of forums
around Victoria with the aim to provide information on key heavy vehicle reform initiatives, identify key road
freight topics and collect, discuss and address any local issues. Council officers attend these public forums,
provide feedback on local issues and participate in discussions with representatives from the sector.

Page 21
Appendix D – AUSTROADS VEHICLE CLASSIFICATION SYSTEM
Light to
medium
trucks
(class 3-5)
Heavy
Trucks
(class 6-9)
B-doubles
(class 10-11)

Page 22
Appendix E. Darebin Freight Movement Investigation Survey 1999
In May-July 1999, a traffic and transport consultant, Turnbull Fenner carried out an Origin-
destination survey in the whole City of Darebin to assist Council with development of the
Integrated Transport Strategy. Number plates representing commercial truck movements
around the Municipality were recorded at 14 monitoring stations. Also 25 local businesses
participated in the survey with Australian Paper being the highest truck traffic generator in the
Municipality. The conclusions to be drawn from the study include:
- Out of 799 trucks using roads in one day, 69% of trucks were rigid and 27% semi-
trailers.
- The maximum number of trips made by a single vehicle was 30 and the majority of
drivers made less than 5 trips per day.
- Majority of trucks operated between 7am and 5pm with the peak observed between
11am and 1pm.
- Most drivers commenced the day from a transport company, followed by a
store/warehouse or factory. The majority of driver’s last and/or next stop was to a
store/warehouse followed closely by a factory facility or a transport company.
- The majority of drivers commenced the day from a location within the municipality.
The remaining drivers were evenly dispersed between the north, south, east and west
regions, with a slight trend towards suburbs north of Darebin.
- The location of the next stop for many drivers was within the City of Darebin, suburbs
to the north or in neighbouring municipalities.
- The majority of drivers’ last stop was again within Darebin, with a slight trend towards
suburbs in the north and south of the municipality.

Page 23
Appendix F – Freight facts and projections (source: Freight Futures)
Freight today Freight future
Victoria’s total freight task has reached 560 million
tonnes across all modes.
By 2020 the Victorian freight task will total 820
million tonnes, a 47% increase from today. By 2030
the task will have grown to over 1,100 million
tonnes, a 97% increase from today.
Approximately $14 billion in airfreight handled through
Melbourne Airport per annum.
By 2020 the Air Freight Task value will approach
$20 billion, an increase of 42%.
91 million tonnes of freight is carried on Victoria’s key
regional freight corridors (Hume, South West, North
West, Western, Gippsland).
By 2020 nearly 160 million tonnes in freight will be
carried on Victoria’s key regional freight corridors,
an increase of over 70%.
There is over 12 billion tonne kilometres of freight
moving within metropolitan Melbourne per annum.
17 billion tonne kilometres of freight will be moving
within metropolitan Melbourne by 2020, an increase
of over 40%.
The economic cost of congestion in metropolitan
Melbourne to all network users is estimated to be
between $1.3 – $2.6 billion pa.
By 2020, with no substantial intervention, cost of
congestion will have doubled to at least $2.6 – $5.2
billion annually.
There are 31.5 billion kilometres travelled per annum
within metropolitan Melbourne by private cars.
In 2020, there will be 38.5 billion kilometres
travelled by private cars, an increase of 22%.
There are 5.5 billion kilometres travelled per annum
within metropolitan Melbourne by freight vehicles.
By 2020 total kilometres travelled by freight vehicles
is forecast to have grown to 9.7 billion kilometres,
an increase of 77%.
Freight traffic accounts for 15% of total vehicle
kilometres travelled within metropolitan Melbourne.
By 2020 freight traffic kilometres will account for
20% of total vehicle kilometres travelled within
metropolitan Melbourne.
Melbourne’s metropolitan road freight task by weight
around 210 million tonnes per annum.
Metropolitan road task by weight will be 425 million
tonnes by 2030, an increase of 102%.
Approximately 606,000 freight vehicles are registered
in Victoria.
By 2030, there will be approximately 1.12 million
freight vehicles registered in Victoria, an increase of
85%.
Approximately 490,000 Light Commercial Vehicles are
registered in Victoria.
By 2030, Victoria’s LCV population alone will be
approaching one million vehicles, an increase of
104%.
Approximately 22,250 articulated trucks are registered
in Victoria.
By 2030 there will be over 40,000 articulated trucks
registered in Victoria, an increase of 80%.
Over 2 million twenty foot equivalent containers
(TEUs) move through the Port of Melbourne annually.
By 2030, approximately 6.8 million TEUs will be
traded through the Port of Melbourne, a 210%
increase on today.
The average size of ships visiting the Port of
Melbourne is approximately 2,400 TEU.
Average ship size through the Port of Melbourne in
2030 will be over 4,500 TEU, an 88% increase.
Approximately 3,500 ships visit the Port of Melbourne
per annum.
By 2030 there are forecast to be 5,500 ship visits to
the Port of Melbourne per annum, an increase of
57%.
Source: Freight Futures after BTRE 2006, 2007, (Special date series), Port of Melbourne Corporation,
(Special date series) ABS: SMVU 9208.0 Various Years, 2006-2008), Victorian AirFreight Council,
VCEC Congestion Inquiry, DOI 2002.

Page 24
Appendix G.

Report to Darebin Council on freight in context of Victoria's freight strategy

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