HEAVY VEHICLE PRODUCTIVITY PLAN

2020–2025

Delivering safe, efficient and productive heavy vehicle movements supporting a strong and prosperous Australia

August 2020 Foreword

We are pleased to present the NHVR’s Heavy Vehicle Productivity Plan 2020–2025 (the Plan), which outlines our objectives, goals and actions to deliver safe, efficient and productive heavy vehicle movements supporting a strong and prosperous Australia. The Plan delivers on a key commitment in the NHVR Corporate Plan 2019–2022: to work in collaboration with industry and government to identify non-infrastructure productivity solutions for the future freight task. In developing the Plan, we undertook significant engagement with industry and government agencies at all levels, to ensure it appropriately reflects the contributions of our customers, and pursues improvements in heavy vehicle productivity that are valued by governments and industry. We engaged with 55 stakeholders in pre-submission consultation, received 23 formal submissions, presented a webinar with 178 registered participants, and held nine workshops with the Commonwealth Government, all state and territory transport agencies and all local government associations in participating jurisdictions. As a risk-based, intelligence-led regulator, we will use data, technology, policy and innovative practices to deliver productivity outcomes for governments and industry. The Plan provides a pathway for us to work with our diverse customer base to deliver tangible benefits to address Australia’s growing road freight task. Ongoing partnership with our customers is vital to ensure the successful delivery of our actions. While we await the outcome of the National Transport Commission’s review of the Heavy Vehicle National Law Act 2012 (HVNL) and the Productivity Commission’s Inquiry into National Transport Regulatory Reform, we will continue to seek opportunities to improve access and productivity under the current HVNL. We believe the Plan provides this opportunity and is sufficiently flexible to adapt to any proposed changes into the future. The NHVR Board and Executive Leadership Team value the commitment and contribution of our customers and other partners in developing the Plan, and we look forward to working together in partnership to maximise the benefits from its successful delivery.

The Hon Duncan Gay Sal Petroccitto Chair of the Board Chief Executive Officer 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

2 The process to deliver the Heavy Vehicle Productivity Plan 2020–2025

Letters to responsible Ministers Establishment of Establishment of internal and Departmental Heads of Intergovernmental Working Project establishment NHVR Project Control Group Commonwealth, state and Group and Local Government January 2019 January 2019 territory governments Association Working Group January 2019 February 2019

Local government and Pre-submission consultation Release of draft Heavy Vehicle Working Group meetings industry webinar with government and industry Productivity Plan 2020–2025 March 2019–February 2020 (Appendix 1) (Appendix 2) December 2019 April 2019 June 2019–October 2019

Develop finalHeavy Vehicle Release finalHeavy Vehicle Formal public consultation Review of submissions Productivity Plan 2020–2025 Productivity Plan 2020–2025 process (Appendix 3) and associated Action Plan and associated Action Plan December 2019–April 2020 March 2020 – April 2020 April 2020 – June 2020 August 2020

Implementation Review and refinement August 2020 Annually

The NHVR’s stakeholder profile Australia’s heavy vehicle profile 4

353,759 103,038 heavy rigid trucks articulated trucks 200,000 people 425 road managers in the Australian road under the HVNL freight industry 1

924,860 99,379 Registered heavy vehicles buses and trailers 5 50,000 6 HVNL Australian road participating freight businesses 2 jurisdictions 3 2020–2025

1 Australian Bureau of Statistics, 2018, 6291.0.55.003 - Labour Force, Australia, Detailed, Quarterly, November 2018 2 Australian Bureau of Statistics, 2018, 8165.0 Counts of Australian Businesses, including Entries and Exits, June 2013 to June 2017 3 The Australian Capital Territory, New South Wales, Queensland, South Australia, Tasmania and Victoria. 4 Australian Bureau of Statistics, 2018, 9309.0 - Motor Vehicle Census, Australia, 31 January 2019

5 NHVR, 2020, Registration demographics as at January 2020 ProductivityHeavy Plan Vehicle

3 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

4 Contents

Foreword 2

The process to deliver the Heavy Vehicle Productivity Plan 2020–2025 3

The national road freight and heavy vehicle access picture 6

About the Heavy Vehicle Productivity Plan 7

Actions of the Heavy Vehicle Productivity Plan 8 Short-term actions (1 to 2 years) 8 Medium-term actions (2 to 4 years) 9 Long-term actions (4 years +) 9

Strategic direction 10

Objective 1: Provide access certainty and consistency 12 Goal 1: Provide value to government and industry through targeted elimination of access permits 12 Goal 2: Provide greater access certainty for Performance Based Standards (PBS) vehicles 14 Goal 3: Facilitate access and productivity through understanding the capacity and capability of key freight roads and structures 16 Goal 4: Facilitate greater access and productivity through movement data 17

Objective 2: Partner with local government to build capability 18 Goal 1: Develop an education and support program on heavy vehicle performance and route assessments 18 Goal 2: Equip road managers with route assessment products 20 Goal 3: Deliver digital and data solutions to enable improved government and industry decision-making 21

Objective 3: Promote safer and more productive heavy vehicles that are better for the environment and communities 23 Goal 1: Incentivise the uptake of modern vehicles with the latest safety and environmental technologies 23 Goal 2: Deliver PBS 2.0 – a modern approach to the PBS scheme 25 Goal 3: Promote awareness of planning and design for modern and safer vehicles 27

Appendix 1: Online webinar registrations 29

Appendix 2: Pre-submission consultation register 30

Appendix 3: Formal submission register for the draft Plan 31

Appendix 4: Alignment with government initiatives 32

Appendix 5: Understanding heavy vehicle access under the NHVR 34

Appendix 6: Heavy vehicle data acquisition and enrichment under the NHVR 36

Appendix 7: The Performance Based Standards scheme 37 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

5 The national road freight and heavy vehicle access picture

Access permits and notices by the numbers

Over national, state and transitional notices Over 200,000 single access permit applications 120 processed by the NHVR since inception 6 Over 2,000 pre-approved routes covering over Over 40,000 single access permit applications processed by 43,000KM of road the NHVR in 2018–19: Pre-approvals reduce end-to-end permit issue time by 68% 94% of all applications approved of granted consents made by pre-approval with average 99% of renewal applications approved 8.9% permit issue time of 4.55 DAYS Requested routes: 1 to over 900 per permit 91.1% of granted consents made with no pre-approval with Road managers: 1 to over 70 per permit – 1.7 road managers average permit issue time of 14.18 DAYS involved in an average permit

Consent request: Local government road managers Australia’s growing freight task in 2018–19: The Australian economy is the 13TH LARGEST globally but 93% approved within 28 days with average Australia has the FIFTH LARGEST freight task 7 turnaround of 5.5 DAYS Australia’s road freight task is growing almost TWICE AS FAST 7% approved outside of 28 days with average turnaround as its population. 8, 9 of 67 DAYS Total freight task is over 738 BILLION tonne-kilometres – Consent requests: State and territory government road managers 80% growth predicted between 2010 and 2030 10 in 2018–19: TONNES of freight are moved per person per year 11 93% approved within 28 days with average turnaround 163 Road freight task is over BILLION tonne-kilometres 12 of 4.9 DAYS 214 7% approved outside of 28 days with average turnaround Almost 30% of all freight is moved by road 13 of 63.8 DAYS Road freight movements: 75% within and 25% between state and territory borders 14

Road transport = $137 BILLION in economic output 15 2020–2025

6 A single access permit application may involve more than one road manager 7 Organisation for Economic Co-operation and Development, 2018, Freight transport 8 Bureau of Infrastructure, Transport and Regional Economics, 2018, Australian Infrastructure Statistics Yearbook 2018, Australian Government 9 Australian Bureau of Statistics, 2018, 3101.0 - Australian Demographic Statistics, Dec 2014, Dec 2015, Dec 2016, Dec 2017, Dec 2018 10 Department of Infrastructure, Regional Development and Cities, 2018, Inquiry into National Freight and Supply Chain Priorities – Report March 2018, Australian Government 11 Ibid 12 Ibid 13 Ibid 14 NTC, 2016, Who Moves What Where: Freight and Passenger Transport in Australia

Heavy Vehicle ProductivityHeavy Plan Vehicle 15 Australian Bureau of Statistics, 2018, 5270.0 - Australian Transport Economic Account: An Experimental Transport Satellite Account

6 About the Heavy Vehicle Productivity Plan

Objectives and Goals Actions The NHVR is Australia’s dedicated While it is not intended to encompass statutory regulator for all heavy vehicles the NHVR’s full future work program, the over 4.5 tonnes gross vehicle mass or Plan articulates actions within each goal aggregate trailer mass. It also has a that will be undertaken over the next five direct regulatory relationship with all years to improve access and productivity. levels of government and the heavy Achieving genuine safety outcomes is vehicle industry. also a key focus of the Plan. The NHVR is uniquely positioned These actions respond to requests from to support a national approach to our stakeholders. addressing Australia’s growing road Consultation identified priority actions of freight task, and is committed to shared importance among governments achieving improved efficiency and and industry that will deliver the greatest productivity outcomes for the benefit of its benefit to access and productivity. government and industry partners. Fundamentally, these priority actions The Heavy Vehicle Productivity Plan can be categorised as contributing to 2020–2025 (the Plan), developed in increasing the coverage of notices and extensive consultation with governments gazetted and pre-approved networks, and industry (refer Appendices 1–3), improving the Performance Based outlines the NHVR's intent to facilitate Standards (PBS) scheme, and helping safe, efficient and productive heavy governments make more-informed vehicle movements. decisions. This intent is to be achieved through the The support of the Commonwealth, state, Plan’s three objectives: territory and local governments and Objective 1: Provide access certainty and industry will be vital to delivering the Plan consistency and outcomes, and the NHVR will partner with relevant stakeholders where required. Objective 2: Partner with local Further, successful delivery of some government to build capability actions may also be subject to funding Objective 3: Promote safer and more availability. productive heavy vehicles that are better A consolidated list of actions, ordered for the environment and communities by short-, medium- and long-term Each objective contains goals that are deliverables, is located on pages 8‒9, key elements to delivering on the intent of with the priority actions indicated. the Plan. The goals outline how the NHVR will Supporting information enhance existing and implement new A summary of important background programs and initiatives. information that supports the Plan is provided in the appendices: Because the heavy vehicle road freight • Appendix 4: Alignment with sector is a service industry, improvements government initiatives to access and productivity, delivered • Appendix 5: Understanding heavy through the Plan’s objectives and goals, vehicle access under the NHVR will result in flow-on benefits across the • Appendix 6: Heavy vehicle data supply chain, thereby benefiting local acquisition and enrichment under the businesses and the community at large. NHVR • Appendix 7: The Performance Based Standards scheme. 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

7 Actions of the Heavy Vehicle Productivity Plan

Short-term actions (1 to 2 years) 16

Objective 1: Provide access certainty and Action Key Partners consistency Goal 1: Provide value to government and Encourage road managers to expand gazetted and pre-approved networks through Road managers industry through the targeted elimination of enhanced data-sharing solutions for historic access permit approvals* access permits [PRIORITY ACTION] Continue to deliver and maintain national, state and territory notices prioritised by State and territory safety and productivity benefits to government and industry [PRIORITY ACTION] transport agencies Establish a national working group to guide notice prioritisation, development and Road managers maintenance Industry Publish and maintain a prioritised notice development and maintenance program on the NHVR website with key milestones and status updates Goal 2: Provide greater access and certainty for Continue to exempt a greater range of PBS vehicles from access permit State and territory Performance Based Standards (PBS) vehicles requirements on existing equivalent prescriptive gazetted networks or PBS-specific transport agencies networks [PRIORITY ACTION] Road managers Industry Encourage road managers to expand gazetted and pre-approved PBS networks Road managers through enhanced data-sharing solutions for historic PBS access permit approvals and PBS vehicle designs* [PRIORITY ACTION] Enable tailored access to parts of the road network that would otherwise have been deemed unsuitable through data-sharing of PBS vehicle technical assessment results Goal 3: Facilitate access and productivity Develop and deliver the Strategic Local Government Asset Assessment Project Commonwealth through understanding the capacity and [PRIORITY ACTION] Government capability of key freight roads and structures Build a national map of key freight roads and structures that provides a central platform Road managers to consistently store, manage and view asset information Advocate for dedicated annual funding to continue the Strategic Local Government Asset Assessment Project beyond the initial funded program Objective 2: Partner with local government to build capability Goal 1: Develop an education and support Continue to deliver and expand the range of education and training material State and territory program on heavy vehicle performance and available to road managers [PRIORITY ACTION] transport agencies route assessments Continue to facilitate forums, workshops and online training for council engineers Road managers Continue to facilitate engagement opportunities between road managers and industry to State and territory build relationships and enable collaboration leading to mutually beneficial outcomes transport agencies Road managers Industry Goal 2: Equip road managers with route Develop an on-demand and self-paced eLearning program on the revised Approved assessment products Guidelines for Granting Access Continue the provision and enhancement of route assessment products* [PRIORITY ACTION] Goal 3: Deliver digital and data solutions to Develop an access permit data hub that analyses and visualises historic access enable improved government and industry permit outcomes by road for different vehicle types* [PRIORITY ACTION] decision-making Objective 3: Promote safer and more productive heavy vehicles that are better for the environment and communities Goal 1: Incentivise the uptake of modern Develop a Vehicle Safety and Environmental Technology Uptake Plan to accelerate and Commonwealth vehicles with the latest safety and environmental incentivise the uptake of safety and environmental technology in the heavy vehicle fleet Government technologies Industry 2020–2025

16 Estimated timeframes are not reflective of commencement date or duration, nor confirmation of completion date. Timeframes are an estimate of the earliest delivery of the action. Delivery of actions may be subject to funding and partnership with key stakeholders.

Heavy Vehicle ProductivityHeavy Plan Vehicle *Subject to funding

8 Medium-term actions (2 to 4 years) 17

Objective 2: Partner with local government to Action Key Partners build capability Goal 2: Equip road managers with route Centralise availability of route assessment tools and guidelines with the NHVR Austroads assessment products State and territory transport agencies Goal 3: Deliver digital and data solutions to Develop a national mapping solution for heavy vehicle access related services* Commonwealth enable improved government and industry [PRIORITY ACTION] Government decision-making State and territory transport agencies Objective 3: Promote safer and more productive heavy vehicles that are better for the environment and communities Goal 2: Deliver PBS 2.0 – a modern approach to Complete the review of the standards in the PBS scheme under the PBS marketplace Commonwealth the PBS scheme review* [PRIORITY ACTION] Government Continue to implement improved systems and processes that incentivise industry State and territory uptake and accelerate growth in the PBS scheme* [PRIORITY ACTION] transport agencies National Transport Commission Industry

Long-term actions (4 years +) 18

Objective 1: Provide access certainty and Action Key Partners consistency Goal 4: Facilitate greater access and productivity Work with road managers to understand how to use movement data and to develop Transport through movement data policies enabling greater access and productivity through technology Certification Progressively adopt a range of technology solutions, with assurance levels appropriate Australia to the safety and infrastructure risk of vehicle operations, to facilitate greater access and Road managers productivity Industry Evaluate and develop digital tools that enable analysis and visualisation of movement data collected for access purposes* Objective 2: Partner with local government to build capability Goal 1: Develop an education and support Continue to encourage the implementation of Heavy Vehicle Access Liaison Officer in Commonwealth program on heavy vehicle performance and participating jurisdictions Government route assessments State and territory transport agencies Local government associations Goal 2: Equip road managers with route Develop nationally consistent route assessment and network classification guidelines Austroads assessment products State and territory transport agencies Objective 3: Promote safer and more productive heavy vehicles that are better for the environment and communities Goal 1: Incentivise the uptake of modern Develop policies enabling greater access and productivity for vehicles fitted with modern State and territory vehicles with the latest safety and environmental safety and environmental technologies transport agencies technologies Industry Support the increased harmonisation of Australian vehicle standards with international Commonwealth standards to allow for the latest designs from origin markets and the fitment of safety Government and environmental technology from those major market designs Industry Implement the Vehicle Safety and Environmental Technology Uptake Plan* Goal 3: Promote awareness of planning and Support governments and industry to build the social licence of road freight among Commonwealth design for modern and safer vehicles governments and communities Government

Support and encourage governments to update planning and design standards to State and territory 2020–2025 support modern heavy vehicles transport agencies Road managers Industry

17 Estimated timeframes are not reflective of commencement date or duration, nor confirmation of completion date. Timeframes are an estimate of the earliest delivery of the action. Delivery of actions may be subject to funding and partnership with key stakeholders. 18 As above.

*Subject to funding ProductivityHeavy Plan Vehicle

9 Strategic direction

The NHVR Corporate Plan 2020–2023 Inquiry into National Transport OSOM Review Regulatory Reform The Plan is aligned with the NHVR The Commonwealth Government’s Corporate Plan 2020–2023, prepared The Productivity Commission has led an Review of Oversize Overmass (OSOM) under the HVNL and approved by inquiry to assess the economic impact of Access Arrangements (OSOM Review) 19 responsible Ministers. The Plan contributes reforms to transport regulation agreed to listed 38 initiatives to improve productivity to delivering on elements of the following by the Council of Australian Governments for the OSOM industry. By the end of NHVR priorities: in 2008–09. 2020, the NHVR will have all initiatives where the NHVR is a responsible party. • Improved and measurable safety The scope includes national heavy outcomes, targeting the greatest safety vehicle transport regulatory reform, in The NHVR will continue to engage with risks. addition to that of other transport modes. other responsible parties and support • Greater and timely road network The Plan has been developed to consider them in the completion of their allocated access certainty and increased this inquiry. recommendations—in particular, the productivity for the heavy vehicle recommendation for the Commonwealth The final inquiry report was handed to the industry. Government and state and territory Commonwealth Government on 7 April • Promoting the adoption of safer, transport agencies to resolve inconsistent 2020. The date for public release of the cleaner and more efficient vehicles pilot and escort arrangements through final report has not yet been announced. and environmental technologies. the Transport and Infrastructure Council. • Successful transition of regulatory services to improve efficiency, effectiveness and consistency for heavy vehicle regulation. • Positioning the NHVR as the national leader and modern regulator. • Engaging effectively and constructively with reform of the heavy vehicle regulatory framework.

The HVNL Review The National Transport Commission (NTC) commenced a review of the HVNL in late 2018 to create a more risk-based and outcomes-focused law. The NHVR believes it is important to commence work now on improving productivity in the heavy vehicle sector. Therefore this Plan focuses on policies and activities that are both deliverable under the current HVNL and sufficiently flexible to adapt to a new HVNL. This will allow the NHVR to deliver immediate improvements to access and productivity before the new HVNL is enacted. The Plan also provides the opportunity to commence delivery of a longer-term, modern access regime under the new HVNL, including mechanisms to support the adoption of risk-based access, which has been widely supported by industry and government. 2020–2025

19 Department of Infrastructure, Regional Development and Cities, 2018, Review of Oversize Overmass (OSOM) Access

Heavy Vehicle ProductivityHeavy Plan Vehicle Arrangements, Australian Government.

10 Alignment with government initiatives Amendment disclaimer The Plan aligns with and complements The Plan may be reviewed from time to time the heavy vehicle and road freight to reflect any recommendations tabled by initiatives identified by the NHVR’s the finalisedHVNL Review, the Inquiry into government partners, inclusive of how National Transport Regulatory Reform, or the NHVR intends to implement aspects other reforms related to the heavy vehicle of agreed recommendations where it regulatory environment that have a material is a relevant and suitably responsible impact on the role and functions of the party. Importantly, the Plan also confirms NHVR and the Plan. the NHVR’s commitment to supporting The Plan may also be reviewed in response government partners to deliver some of to ongoing engagement activities with their initiatives. governments and industry, to ensure the An overview of key government initiatives NHVR continues to deliver efficient and considered by the Plan is provided in effective regulatory services to its customers. Appendix 4. 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

11 Objective 1: Provide access certainty and consistency

Goal 1: Provide value to government and industry through targeted elimination of access permits

Outcomes we want to achieve Notice delivery and maintenance is historic access permit applications should not strictly an NHVR or government be made more openly accessible and The NHVR envisions a future where responsibility; industry also has a role to easier to analyse. permits are required by exception rather play. This may include providing vehicle than as a rule. Over the last six years, the Trend information from completed data and research (e.g. the National NHVR has worked with state, territory and applications processed through the Farmers Federation commissioning James local governments to develop national NHVR Portal will improve government Cook University to undertake a safety and state notices that remove the need and industry understanding of demand study on large agricultural vehicles), and for permits and to improve consistency and volume on approved routes. This assisting the NHVR to ensure industry as within and across borders. 20 information will help them work more a whole is aware of potential changes collaboratively to identify, prioritise and Prioritising the development and to the access environment and that they implement gazetted and pre-approved maintenance of notices by quantifiable understand their regulatory obligations. networks, including those not previously benefits or to support critical industries Legacy policy issues at a jurisdictional considered. (e.g. the agricultural sector during natural level have played a significant role in disasters) will provide the greatest value Digital data analysis and reporting delaying or preventing the delivery to road managers, industry and the solutions will accelerate heavy vehicle of national or multi-state notices. All Australian economy. network growth to eliminate the need for stakeholder groups recognised that industry to apply for permits (including Enhanced data-sharing solutions will a combination of rationalisation, transferring pre-approvals to gazettals). empower road managers and provide consolidation and harmonisation needs It will also eliminate the need for road the evidence base to accelerate to be considered. This would suitably managers to undertake repetitive route expansion of gazetted and pre-approved balance achieving greater safety and assessments, providing them the time to networks. Greater ability to strategically productivity outcomes nationally with focus on complex permit applications. create end-to-end permit-free networks consideration of significant local needs. and maximise the use of roads is critical Road managers, as access enablers, The NHVR recommends that a strong to delivering significant economic benefits will continue to be engaged to ensure governance model be developed and across the country, and to reduce the network growth is managed safely, agreed to by government stakeholders, regulatory and administrative burden for sustainably and responsibly. so the NHVR can work collaboratively governments and industry. and expeditiously with these parties. Many risks and network Delivering and maintaining notices to Improving the framework and process, limitations should be known maximise value and continuing to implement notices that provide the greatest value to our as most key freight roads Through submissions to the draft Plan, government and industry customers, there was broad support by all key parties have, at least in part, been also confirms our commitment to the to increase access via notices. Commonwealth Government’s National assessed and approved Industry requested that a more diverse Freight and Supply Chain Strategy multiple times before. range of heavy vehicles should be able National Action Plan and the OSOM to operate on roads without a permit Review. (including existing vehicle types at greater of applications mass and/or dimension limits), and road Use evidence from the NHVR Portal to Over 94% are approved managers sought a reduction in the need expand gazetted and pre-approved for repeat route assessments, where they networks have deemed access is safe. of applications Working smarter and continuing to Over 30% are renewals State and territory transport agencies deliver a stronger evidence base is vital recommended a greater focus on to partnering with road managers to efficient notice maintenance, citing expand gazetted and pre-approved of renewals are greater potential nationwide value from networks. Road managers and industry Over 99% approved with little enhancing existing notices, rather than have recommended that information on or no change developing new notices. 2020–2025

Heavy Vehicle ProductivityHeavy Plan Vehicle 20 Refer to Appendix 5 for a summary of heavy vehicle access under the NHVR.

12 Case study: The value of notice development and maintenance: • Industry estimates that the National Class 1 Agricultural Vehicle and Combination Notice 2019 eliminates over 80 per cent of permit requirements for Australia’s agricultural fleet.

• The NHVR estimates that the National Class 1 Special Purpose Vehicles (SPV) Notice 2016 will benefit the economy by $130 million over 20 years.

• Notice maintenance can provide greater value than new notices. From May 2020, almost one-third of OSOM permits are expected to be eliminated in New South Wales due to upgrades brought about by the Multi-State Class 1 Load Carrying Vehicle Dimension and Mass Exemption Notices. • The NHVR and state and Figure 1: Granted OSOM permits on Figure 2: Increased consistency in territory transport agencies Brisbane City Council Roads in 2019–2020 operating conditions for agricultural regularly partner to deliver (processed through the NHVR Portal) movements between jurisdictions – The notices to support industry NHVR Class 1 Agricultural Vehicle and in emergency situations. The Combination Mass and Dimension National Class 3 Drought Exemption Notice reduced operating Assistance Dimension Exemption zones from 16 (before) to five (after). Notice 2018 (No.1) provided farmers with vehicle dimension limit relaxations to transport baled hay more productively. Holiday travel restrictions were relaxed in 2020 to assist industry during the COVID-19 crisis.

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Encourage road managers to expand gazetted and Road managers Reduced industry need for access permits    pre-approved networks through enhanced data- Reduced road manager need to undertake repeat sharing solutions for historic access permit approvals* route assessments Continue to deliver and maintain national, state and State and territory Increase in vehicle diversity operating under notice    territory notices prioritised by safety and productivity transport agencies Net increase in pre-approved and gazetted network benefits to government and industry Road managers length (including pre-approvals transitioned to gazettals) Establish a national working group to guide notice Industry  prioritisation, development and maintenance Improved operational consistency within and between state and territory borders 2020–2025 Publish and maintain a prioritised notice development Establishment of a consistent, streamlined approach    and maintenance program on the NHVR website with to the delivery of notices key milestones and status updates

*Subject to funding Heavy Vehicle ProductivityHeavy Plan Vehicle

13 Goal 2: Provide greater access certainty for Performance Based Standards (PBS) vehicles

Outcomes we want to achieve Currently an approved PBS Level Targeted expansion of PBS networks 2A B-double at General Mass Limits Collectively, governments have a In response to industry and road (GML) with safer on-road performance responsibility to ensure heavy vehicles manager requests to reduce the need has no access under notice, whereas can meet the country’s growing freight to apply for, and undertake route its prescriptive equivalent—the 26m task, which means delivering more goods assessments, the NHVR intends to B-double—benefits from a broad gazetted with fewer vehicles in a safe manner. PBS enhance data-sharing and make historic network (Table 1). No access is currently vehicles deliver on this outcome and are PBS access permit approvals more provided to PBS Level 3A and 4A vehicles critical to addressing the demands of transparent. under notice. 21 Australia’s growing road freight task. This will enable more efficient and This access disparity does not facilitate Over the past decade, PBS vehicles have consistent permit responses, reduce PBS vehicle operations, and results in been responsible for delivering significant end-to-end permit issue times, accelerate sub-optimal transport system outcomes safety, productivity and sustainability PBS pre-approved and gazetted network in terms of safety, freight productivity and benefits for industry, governments and the growth (including transferring pre- asset management. community (refer to Appendix 7). Without approvals to gazettals), and complement greater access certainty for PBS vehicles, The NHVR and road managers need other PBS data-sharing initiatives. these benefits will be lost. to work together to collectively open up access on equivalent prescriptive Provide technical information to These achievements were possible gazetted networks for PBS vehicles— increase permit access through the NHVR working with road through notices initially and by changes managers to embrace the PBS scheme Road managers have advised that they to the HVNL. and supporting them to open access would be able to make more efficient for PBS vehicles on their roads. By being and better-informed access decisions if Provide improved data to open up equipped with better data on historic detailed performance results of individual access on PBS-specific networks permit approvals, fleet design and vehicle PBS vehicles were made available to performance, road managers will be Inadequate access to PBS design data is them. better placed to make more effective, limiting road managers’ ability to develop In the absence of technical information efficient and informed decisions— PBS networks for longer and heavier on PBS vehicle performance, route enabling more PBS vehicles to operate on PBS vehicles. For example, determining assessments for PBS access permit expanded networks and greater access network suitability for heavier PBS vehicles applications are conducted using the certainty. requires road managers to undertake ‘worst-case scenario’ (e.g. the Low Speed complex bridge assessments. This process Increased network availability and access Swept Path of a 30m long PBS Level 2B is difficult, given significant variation in the certainty for the entire PBS fleet will also vehicle will never exceed 8.7 metres, but load effects of different PBS vehicles, even encourage PBS vehicle uptake and for its prescriptive equivalent—the shorter within the same PBS level. design innovation. 26m B-double—it can be greater than State and territory transport agencies 9 metres). Provide access to equivalent have advised that access to Provision of technical information will prescriptive gazetted networks comprehensive configuration data enable road managers to better match for a broad range of PBS vehicles will Permit-free access is limited for many PBS PBS vehicles to suitable networks that allow them to undertake more efficient vehicles. Where there is sufficient capacity would otherwise have been refused or geometric and structural analysis to and capability on existing equivalent conditioned. They may further elect to not support the development of PBS-specific prescriptive gazetted networks, permit undertake route assessments, reducing networks for longer and heavier PBS requirements should be eliminated. permit issue times. vehicles. 2020–2025

Heavy Vehicle ProductivityHeavy Plan Vehicle 21 Refer to Appendix 7 for an overview of the PBS scheme and PBS levels.

14 Case study: Access certainty leads to PBS access reforms 23 have historically safer,Case cleaner study: and Access more certainty productive benefitedPBS access truck reforms and23 havedog trailer historically outcomesleads to safer, cleaner and more combinations.benefited truck The and success dog trailer of PBS productive outcomes truckcombinations. and dog Thetrailer success combinations of PBS There have been more than 20,000 demonstratestruck and dog that trailer when combinations greater separateThere havePBS approvals been more (trucks, than 20,000trailers productivitydemonstrates and that access when certaintygreater is andseparate buses), whichPBS approvals together (trucks,make up trailers achieved,productivity a andsafer, access cleaner certainty and more- is moreand than buses), 10,000 which PBS together combinations. make upFor productiveachieved, a replacement safer, cleaner becomes and more- the morelast three than years, 10,000 PBS PBS vehicles combinations. have industry’sproductive first replacement choice of becomesvehicle (e.g. achievedFor the a last 20 threeper cent years, share PBS of vehicles the PBSindustry’s four-axle first and choice above of vehicle dog trailers relevanthave heavyachieved vehicle a 20 market. per cent 22 share of dominate(e.g. PBS four-axle the market and segment, above dog with up to the relevant heavy vehicle market.22 90trailers per dominatecent market the share). market 24 segment, with up to 90 per cent market share).24

Table 1: Example of current access comparison – Prescriptive B-double versus PBS 2A B-double Vehicle Description Axle Group Mass (GML) Maximum Dimension (m) Maximum Low Speed Access to Gazetted 26m Length Height Width Swept Path (m) B-double Routes

9-axle B-double Yes 26 4.3 2.5 9.1 (Prescriptive) Access allowed under notice 6.5t 16.5t 20.0t 20.0t

9-axle B-double No 26 4.6 2.5 8.7 (PBS 2A) Access permit is required 6.5t 16.5t 20.0t 20.0t

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Continue to exempt a greater range of PBS vehicles State and territory Reduced industry need for access permits from access permit requirements on existing equivalent transport agencies Reduced road manager need to undertake route    prescriptive gazetted networks or PBS-specific Road managers assessments networks Industry Increase in vehicle diversity operating under notice Net increase in pre-approved and gazetted network length (including pre-approvals transitioned to Encourage road managers to expand gazetted and Road managers gazettals) pre-approved PBS networks through enhanced    Improved operational consistency within and between data-sharing solutions for historic PBS access permit state and territory borders approvals and PBS vehicle designs* Improve road manager understanding of the Enable tailored access to parts of the road network Road managers performance and network suitability of PBS vehicles that would otherwise have been deemed unsuitable   through data-sharing of PBS vehicle technical assessment results

*Subject to funding 2020–2025

22 NHVR and ARTSA-i, 2020, Performance Based Standards – Australia’s PBS fleet 2020 Edition 23 The HVNL was amended on 1 October 2018 to provide general access to PBS Level 1 vehicles operating at GML. Level 1 PBS truck and dog trailer combinations can operate at 50.5t GML, while non- PBS variants can only operate at 42.5t GML. The following PBS notices have been delivered (as at 30 June 2019): the National Class 2 PBS Level 1 & 2A Truck and Dog Trailer Authorisation Notice 2016 and the Queensland Class 2 Performance Based Standards A-Double (Toowoomba to Port of Brisbane) Authorisation Notice 2018.

24 NHVR and ARTSA-i, 2020, Performance Based Standards – Australia’s PBS fleet 2020 Edition ProductivityHeavy Plan Vehicle

15 Goal 3: Facilitate access and productivity through understanding the capacity and capability of key freight roads and structures

Outcomes we want to achieve managers with assessments of assets, Progressing towards an access model such as bridges and culverts, on key local based on infrastructure capacity and Currently, there is limited information government roads. available regarding the capacity and capability capability of key freight roads and The nationwide Strategic Local Government and industry stakeholders bridges, particularly on local government Government Asset Assessment Project have requested greater flexibility in roads. There is also no centralised aims to identify the existing capacity and how access can be provided, with a source for accessing this information capability of road infrastructure and share common theme being transitioning in a transparent way for industry and this information centrally, to inform heavy from individual route assessments for governments. vehicle road access. individual vehicles, towards access for a range of vehicles (that demonstrate the The Commonwealth Government’s The project will support local government same level of performance). This can National Freight and Supply Chain road managers and industry by: be achieved through road managers Strategy and the OSOM Review call • identifying key heavy vehicle routes on assessing and consenting to an agreed for a centralised approach to collecting local government roads set of infrastructure parameters (e.g. the and sharing asset data, highlighting it • assisting local government road maximum mass or dimension limits for a as integral to facilitating heavy vehicle managers with the management given road or bridge). access. However, this task remains of road asset data related to heavy challenging for all levels of government Any vehicle that is determined to be able vehicles and, critically, data may not exist in some to be safely accommodated within the • delivering prioritised road asset cases. agreed infrastructure parameters would assessments be granted access under an expedited The NHVR will assist local governments • providing a central database for road access model (to be determined). to better understand their key road managers and industry to access road freight assets. Asset data will fill a asset information. This approach also provides the critical knowledge gap and assist road opportunity for road managers to identify The NHVR will work with the managers with the evidence-based clear ‘no go zones’, where certain heavy Commonwealth Government to establish data to advocate for funding for the vehicles on certain roads have been an ongoing program of prioritised projects they need to support their local assessed to represent an unacceptable infrastructure assessments. communities, the road freight task and risk to safety and infrastructure. Access for the economy. these vehicles would then be considered Building a national map of key freight on a case-by-case basis by road By continuing to support local roads and structures managers. governments into the future, the NHVR Improved visibility of road assets and will increase the availability of asset data This model does not diminish road their condition will allow the NHVR, to better understand infrastructure quality managers’ rights to approve or refuse government and industry to better match on key freight roads nationally. access but, where data is available, it heavy vehicles to suitable routes, opening would greatly improve transparency and new and improved access possibilities in Deliver the Strategic Local Government timeliness in providing access decisions. a safe and more productive way. Asset Assessment Project Further, this model also supports shared This information could be displayed on risk responsibility, where industry is In late 2019, the Commonwealth the NHVR Portal Route Planner tool to required to take accountability for their Government provided the NHVR with inform operator applications or road movements when they are aware of $7.96 million in funding to assist road manager assessment decisions. infrastructure parameters set by road managers.

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Develop and deliver the Strategic Local Government Commonwealth Improved understanding of the condition of key  Asset Assessment Project Government freight roads and structures Road managers Data enabling governments to better target Build a national map of key freight roads and structures

2020–2025 infrastructure investment to facilitate new or improved  that provides a central platform to consistently store, access and productivity manage and view asset information Enabling safe access outcomes within the assessed Advocate for dedicated annual funding to continue the capacity and capability of key freight road    Strategic Local Government Asset Assessment Project infrastructure beyond the initial funded program Heavy Vehicle ProductivityHeavy Plan Vehicle

16 Goal 4: Facilitate greater access and productivity through movement data

Outcomes we want to achieve Acknowledging the opportunities GPS tracking data enabling access provided by technology, and and productivity There is strong perceived value in the appropriately balancing assurance NHVR, road managers and industry A range of notices exists that allow with risk, will lead to better access and partnering to understand how to share participating operators to access, or productivity outcomes for industry. and use movement data (e.g. GPS have improved access, to the road tracking data) to achieve productivity network without a permit in return for GPS Partner with government and industry and economic outcomes. This focus monitoring. to agree to the benefits of applying on movement data recognises that the Improved access and productivity full suite of information collected by technology and sharing movement data could be facilitated through technology telematics is not required by everyone to As road managers and the NHVR solutions where assurance levels are make better access decisions. obtain more information on heavy commensurate with the risks associated vehicle movements and asset utilisation, Submission feedback from road with the operation of certain vehicles on the performance of the entire supply managers suggested that awareness certain infrastructure (i.e. a risk-based chain will progressively improve through of movement volume from de-identified approach to the use of technology). increased awareness and network movement data could encourage the optimisation possibilities (e.g. the For example, the NHVR believes there is adoption of a lower risk profile when evidence base to upgrade roads or a role for the IAP in monitoring higher-risk making heavy vehicle access decisions. gazette roads under notice). vehicles (e.g. use on the heaviest mobile Importantly, some road managers cranes to protect sensitive bridges), given suggested that they would be more likely It is essential that there is a nationally its high level of assurance and high cost. to expand networks, grant approvals agreed and consistent approach for the instead of refusals, provide quicker use of technology and movement data Considering most medium-to-large road responses and apply fewer conditions to increase access and productivity, transport companies already use a if they were given greater assurance of while reducing the regulatory and range of technology solutions to address what vehicles were moving where, when administrative burden on industry and specific tasks or needs regarding safety and how often. promoting safety and infrastructure and productivity, it is important, where protection for governments. possible, to leverage these substantial Peak industry associations and operators investments. indicated that industry would be willing to Incentivising the take-up of technology by voluntarily share movement data, if there industry (particularly by smaller operators) Using a diverse range of technology is a convincing incentive from improved will also require the removal of cost solutions, with greater overall network access. This includes productivity gains barriers. coverage, will also assist to accumulate and long-term access certainty to justify the data to assist road managers with For example, commonly cited issues with involvement and sufficient data security asset management, network planning, the Intelligent Access Program (IAP) are to protect privacy and commercial and prioritising the expansion of pre- its historically high cost and inconsistent information. approved and gazetted networks. application, relative to other technology solutions available on the market.

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Work with road managers to understand how to use Transport Reduced industry need for access permits    movement data and to develop policies enabling Certification Reduced road manager need to undertake repeat greater access and productivity through technology Australia route assessments Road managers Progressively adopt a range of technology solutions, Increased adoption of a range of telematics with assurance levels appropriate to the safety and Industry applications    infrastructure risk of vehicle operations, to facilitate Data enabling improved understanding of 2020–2025 greater access and productivity heavy vehicle movements to support access and infrastructure investment decision-making Evaluate and develop digital tools that enable analysis   and visualisation of de-identified movement data collected for access purposes*

*Subject to funding Heavy Vehicle ProductivityHeavy Plan Vehicle

17 Objective 2: Partner with local government to build capability

Goal 1: Develop an education and support program on heavy vehicle performance and route assessments

Outcomes we want to achieve • varying understanding of the further improve road managers’ capability infrastructure impacts and safety and and confidence for future access decisions. Road managers are key partners in environmental performance of different Educational materials and activities may providing access, and play a vital role in heavy vehicles include information sheets, in-person making access decisions that balance • uncertainty regarding the engineering forums, online webinars and on-demand safety, productivity and the long-term assessments required for different eLearning. sustainability of the road network for all heavy vehicles on different roads and road users. Education is a shared responsibility, and all bridges levels of government have a role to play In alignment with the Commonwealth • not all road managers are engineers, to ensure a minimum acceptable national Government’s Freight and Supply Chain and specialist engineers may not be standard of knowledge and capability. Strategy National Action Plan, the NHVR available to provide advice is committed to improving road manager • high road manager staff turnover Implementing Heavy Vehicle Access capability through continuous training results in the loss of valuable Liaison Officers and education. accumulated corporate knowledge. Most jurisdictions’ freight strategies Providing opportunities to acquire and Promote and support continuous communicate an intention and willingness refine skills and knowledge in route education to improve capability to support local government. The assessment and network classification will NHVR supports the OSOM Review lead to improved timeliness, consistency The NHVR’s current education activities recommendation that having a Heavy and capability in decision-making, focus on direct engagement with Vehicle Access Liaison Officer (HVALO) benefiting both governments and industry. road managers, in particular in local in each jurisdiction would offer significant government, and bringing them together Forums that facilitate road manager and benefits to local government. with industry. industry collaboration will ensure road The NHVR and the Local Government managers have a clear understanding For example, in October 2019, the NHVR Association of Queensland (LGAQ) of how industry operates and an hosted a heavy vehicle access forum to partnered to implement a HVALO appreciation of the freight task. Industry help council engineers understand how to arrangement between 2017 and 2020. will also be more understanding of the make informed decisions on PBS access The Queensland HVALO has been resource impacts for road managers and the benefits of PBS vehicles, relative integral to relationship building between and the complexity of their processes in to other vehicles, on their road networks. stakeholders, proactively assisting local making access decisions. The two-day event also included government to understand its freight presentations from the NHVR and industry task, and leading the development and Road manager feedback experts, and field trips to crane, PBS delivery of training on heavy vehicles and and OSOM operators. These forums Road managers acknowledge their roles route assessments across Queensland. provide road managers and industry the and responsibilities as key partners in This has proven to be a valuable support opportunity to better understand how providing efficient, safe and sustainable model for local government. each other operates, so that they can growth in access and productivity. make better decisions and better work The NHVR, South Australian Department Consultation with road managers, in together in the future. of Planning, Transport and Infrastructure particular in local government, identified and Local Government South Australia Using innovative methods, expanding the following issues that can affect timely, partnered to implement a HVALO in education and training material, and accurate and consistent decisions: South Australia in July 2020. improving accessibility to this material will

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Continue to deliver and expand the range of education State and territory Improved knowledge of the heavy vehicle fleet and    and training material available to road managers transport agencies heavy vehicle performance Continue to facilitate forums, workshops and online Road managers Improved understanding of the freight task and freight    training for council engineers supply chains Continue to facilitate engagement opportunities State and territory Improved understanding of route assessments and between road managers and industry to build transport agencies network classification    relationships and to enable collaboration leading to Road managers Reduced route assessment and permit issue time

2020–2025 mutually beneficial outcomes Industry Improved consistency in route assessment and network classification outcomes Continue to encourage the implementation of Commonwealth Heavy Vehicle Access Liaison Officer in participating Government jurisdictions State and territory    transport agencies Local government associations Heavy Vehicle ProductivityHeavy Plan Vehicle

18 Figure 3: Increase in road managers in Queensland providing access under the National Class 1 Special Purpose Vehicles (SPV) Notice 2016 after the work of the HVALO arrangements between the NHVR, LGAQ and the Crane Industry Council of Australia 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

19 Goal 2: Equip road managers with route assessment products

Outcomes we want to achieve Existing route assessment products • a heavy vehicle bridge assessment system To support road managers in making Route assessment and network • calculators comparing pavement more timely and consistent access classification guidelines have been impacts for different heavy vehicle decisions, nationally consistent tools and developed by the NTC, jurisdictions and types and mass guidelines will be progressively developed Austroads. In August 2018, the NHVR, • tools to conduct and compare swept and more readily available. the Australian Road Research Board and paths for different vehicles. local government associations partnered Having evidence-based decision-making to deliver the Restricted Access Vehicle tools to assist with route assessment Route Assessment Tool (RAVRAT) to local activities will improve the speed and governments for free. RAVRAT is an online Case study: Pavement wear likelihood of access being granted, while tool designed to provide a consistent and comparison between an appropriately managing risks to public defensible route assessment method. safety or damage to infrastructure. as-of-right vehicle and a restricted Consultation with local government access vehicle Industry and road manager feedback identified that tools and guidelines in Road managers have, in the past, their current form are infrequently used refused to grant access to PBS It is critical that assessments are because: there is a lack of awareness A-doubles operating at GML in the undertaken in a consistent manner to they exist; they are not sure which one belief that this will protect roads from ensure equity and fairness for industry. to use; and/or they are too complex, pavement deterioration. However, Road managers have stated that prescriptive or time consuming. these refusals are causing more undertaking route assessments, and, damage over time compared to the in particular, determining the structural “Austroads has developed … impact of smaller general access capacity of a bridge, is a complex, costly a set of nationally consistent vehicles required to complete the and resource-consuming task. Resource same freight task (Table 2). constraints and not having easy access guides … However, guidelines To provide the best net balance to the right type of engineer can act such as these can only be between safety, infrastructure as a barrier to timely access decisions, of use if local governments protection and productivity, it is particularly for regional road managers. have sufficient resources with important to ensure access decisions Operators have also mentioned that they the expertise and capacity to are informed and in line with the can have a different access outcome than actual performance of heavy 25 another operator for the same freight assess and map networks.” vehicles on roads. Better tools task, despite relevant vehicle and route will ensure road managers make Delivering new route assessment factors being the same. accurate and sustainable decisions. products These issues can be resolved Continuing the delivery and through improving the availability, 26 enhancement of fit-for-purpose route Table 2: Pavement wear comparison comprehensiveness and user-friendliness assessment products that meet the needs of resources to assist road managers to Semitrailer PBS Difference and expectations of road managers can A-double undertake route assessments. contribute to creating a consistent and GML mass (t) 43 79.5 +85 % informed national assessment standard Trips per 1,000t 42 21 -50 % and enable more timely decisions. Equivalent 304 225 -26 % Three frequently requested products Standard Axles include: per 1,000t

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Develop an on-demand and self-paced eLearning Improved knowledge of the heavy vehicle fleet and  program on the revised ‘Approved Guidelines for heavy vehicle performance Granting Access’ Improved understanding of route assessments and Centralise availability of route assessment tools and Austroads network classification    guidelines with the NHVR State and territory Reduced route assessment and permit issue time 2020–2025 Develop nationally consistent route assessment and transport agencies Improved consistency in route assessment and    network classification guidelines network classification outcomes Continue the provision and enhancement of route    assessment products*

*Subject to funding

25 NTC, 2017, Assessing the effectiveness of the PBS Scheme

Heavy Vehicle ProductivityHeavy Plan Vehicle 26 NHVR, 2019, Performance Based Standards – An introduction for road managers

20 Goal 3: Deliver digital and data solutions to enable improved government and industry decision-making

Outcomes we want to achieve NHVR data and programs to support Case study: Contextualising the road funding advocacy freight access challenge The NHVR’s access intelligence is Case study: Contextualising the underpinned by consolidated and Productivity is dependent on the Theroad Commonwealth freight access Government challenge has harmonised national data previously only performance of all roads. Knowing where, announced an investment of $100 The Commonwealth Government provided by state and territory transport when and how often industry has had billion on transport infrastructure as part has announced an investment agencies. access permits approved, conditioned or of its 10-year rolling infrastructure plan, of $100 billion on transport refused, and the standard of key national and the state and territory government Continuing to enhance digital and data infrastructure as part of its 10-year road freight assets, will assist in identifying infrastructure spend is over $150 billion capabilities—including expanding the rolling infrastructure plan,27 and and prioritising investment opportunities from 2018–22. Some of this is directed to functionality of the NHVR Portal and Safety the state and territory government to upgrade existing or open new access local government (e.g. the Fixing Country and Compliance Regulatory Platform infrastructure spend is over $150 on key freight roads and bridges of Roads program by the New South Wales to give users broader, open and 24/7 billion from 2018–22.28 Some of interest. Government, and the Northern Australia access to information collected by the this is directed to local government Beef Roads Program co-funded by the NHVR—will lead to more effective, efficient NHVR data can also assist to inform (e.g. the Fixing Country Roads Commonwealth, Northern Territory, and consistent access decision-making. long-term asset management planning. program by the New South Wales Queensland and Western Australian For example, it may be better to regularly Government, and the Northern Data captured by the NHVR will also Governments). maintain one key corridor, and other Australia Beef Roads Program assist local government to better plan corridors less regularly. Data would also co-funded by the Commonwealth, their infrastructure. This information can be useful for determining levels of service. Northern Territory, Queensland and provide the evidence base to advocate Understanding how roads and bridges Western Australian Governments). for funding from Commonwealth, state are being used by heavy vehicles avoids and territory government programs to the risks and costs of underdesigning key "One of the greatest upgrade and build new infrastructure routes and overdesigning routes not used on the first and last mile to support the challenges facing local by heavy vehicles. growing road freight task. government in the A national mapping system for heavy infrastructure funding Improving the timeliness, consistency vehicle access and transparency of access decisions process is the lack of The NTC (2011) suggests that due to Prior to the NHVR, there was limited visibility of heavy vehicle disparate regulatory services, “…some capturing and sharing of heavy vehicle movements on the road drivers may not comply because it access related information across borders. is complicated and time consuming, network. Having access Data from over 150,000 access permit while other drivers may attempt to to this fundamental applications across all participating comply but fail to do so due to a lack of jurisdictions has been captured by the information would help understanding of what is required.” NHVR Portal since May 2016, and this inform all parties about data is growing daily. A national mapping solution for heavy first and last mile roads vehicle access services will reduce the Easy access to granular information regulatory and administrative burden for important to the freight (e.g. by vehicle type, mass or dimension) industry and improve their efficiency and task. Importantly, it would and developing tools that analyse, productivity. The NHVR envisions a map visualise and report on Australia’s also allow easier and that can: most comprehensive dataset of access more informed decision- decisions will enable road managers • display all gazetted and pre-approved making regarding access to respond to future permit applications networks in a consistent form in the quicker, more accurately and more one location and would help to ensure consistently. This data will also preserve • provide intelligent routing and dynamic road funding is properly valuable road manager knowledge, mapping capabilities to optimise targeted." thereby addressing road manager industry use of the most suitable routes concerns of staff turnover. • enable road manager self-service of (Submitter response to the Draft Plan) gazetted and pre-approved networks to accelerate their ability to provide and maintain safe access for industry.

27 28 2020–2025

27 Department of Infrastructure, Regional Development and Cities, 2019, Building Our Future: Delivering the Right Infrastructure for a Growing Nation, Australian Government

28 Infrastructure Partnerships Australia, 2018, Australian Infrastructure Budget Monitor 2018–2019 ProductivityHeavy Plan Vehicle

21 877,000KM of roads (150,000km urban and 727,000km non-urban) 29

662,000KM of local government roads (75% of total road network) 30

65,000 bridges 31

Figure 4: Applications processed through the NHVR Portal for Brisbane City Council as a road manager in 2018–19

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Develop an access permit data hub that analyses and Reduced route assessment and permit issue time visualises historic access permit outcomes by road for Improved consistency in route assessment and different vehicle types* network classification outcomes  Data enabling improved understanding of heavy vehicle movements to support access and infrastructure investment decision-making

Develop a national mapping solution for heavy vehicle Commonwealth Nationally consistent heavy vehicle network spatial access related services* Government services and standards State and territory Improved road manager heavy vehicle network   transport agencies establishment and management capabilities Solution enabling dynamic mapping and intelligent routing

*Subject to funding 2020–2025

29  Bureau of Infrastructure, Transport and Regional Economics, 2018, Australian Infrastructure Statistics Yearbook 2018, Australian Government 30  Australian Local Government Association, 2019, 2019 Local Government Roads and Transport Agenda

Heavy Vehicle ProductivityHeavy Plan Vehicle 31  Austroads, 2019, Scoping Study: Heavy Vehicle Bridge Assessment System – DRAFT INTERNAL REPORT

22 Objective 3: Promote safer and more productive heavy vehicles that are better for the environment and communities

Goal 1: Incentivise the uptake of modern vehicles with the latest safety and environmental technologies

Outcomes we want to achieve It should be noted that the NHVR has volumes. 32 Safety technology, such as no ability to mandate technology; lane departure warning systems and There have been significant this is a Commonwealth Government cameras, may provide the confidence advancements in, and uptake of, safety responsibility (e.g. through the Australian that vehicles wider than 2,500mm can and environmental technologies in Design Rules). Instead, the NHVR remain in lane and not compromise road domestic and international markets. The welcomes advancements in technology safety. NHVR supports further voluntary uptake that improve safety, environmental of technology already being used by the To mitigate the potential for rollovers, sustainability and productivity. Australian heavy vehicle industry. 4.6m high freight vehicles have their Ongoing Austroads research, mass limited to 90 per cent of what could To achieve this, the NHVR will identify Commonwealth Government regulatory normally be carried legally on the same productivity opportunities to incentivise impact statements and recommendations road if the vehicle was 4.3m high. the adoption of safety and environmental from the Strategic Vehicle Safety technologies, and collaborate with Subject to rigorous research, safety and Environment Group will assist in governments and industry on the removal technology, such as electronic and determining options that the NHVR can of regulatory barriers that limit the rollover stability control systems, may pursue. adoption of advanced technologies in the enable 4.6m high vehicles to operate at domestic market. 100 per cent payload without having a Supporting technology that improves higher risk of vehicle rollover. safety and productivity International harmonisation of vehicle standards Australia is among a few countries in the Incentivising cleaner and greener developed world to have a regulated vehicles Most heavy vehicles in Australia are maximum vehicle width of 2,500mm. imported from Asia, Europe or North The UN Euro VI emission standard is Major international markets are generally America. Australian heavy vehicle better for the environment than Australia’s wider, such as the United States at standards are more than 90 per cent currently mandated Euro V standard. 2,600mm and the European Union at harmonised with international vehicle However, Euro VI emission standard 2,550mm. standards (depending upon the vehicle compliant vehicles are heavier than category), such as United Nations To comply with Australia’s width limits, Euro V vehicles. regulations. imported vehicles often undergo As a payload critical industry, there modifications, such as removal of non- Further harmonising Australia’s heavy would be no commercial incentive to compulsory safety components. Industry vehicle standards with international justify an investment to upgrade without may also not purchase optional vehicle standards, and progressive regulation an increase in mass limits to maintain inclusions to ensure compliance with that incentivises fleet modernisation, will existing levels of productivity. There is Australia’s width limits. offer major benefits, such as improved precedent for this to occur (e.g. the 500kg driver and community safety (Figure 5) Current Australian practice is to provide mass concession provided to upgrade to and reduced environmental pollutants standard traffic lane widths of 3.5m, or Euro IV). 33 (Table 3). 3.0m for low-speed roads with low truck

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Develop policies enabling greater access and State and territory Increase in safer, cleaner and more-productive    productivity for vehicles fitted with modern safety and transport agencies vehicles and technologies in the national heavy environmental technologies Industry vehicle fleet Increased network accessibility for safer, cleaner and Support the increased harmonisation of Australian Commonwealth more-productive vehicles vehicle standards with international standards to allow Government Improved vehicle diversity and purchasing options    for the latest designs from origin markets and the Industry (domestic and import market) fitment of safety and environmental technology from those major market designs Reduced average vehicle age

Develop a Vehicle Safety and Environmental Technology Uptake Plan to accelerate and incentivise  the uptake of safety and environmental technology in the heavy vehicle fleet 2020–2025

Implement the Vehicle Safety and Environmental    Technology Uptake Plan*

*Subject to funding

32 Austroads, 2016, Guide to Road Design Part 3 – Geometric Design 33 This mass concession is also to accommodate the fitment of Front Underrun Impact Protection that meets UN ECE Regulation No. 93 or ADR 84, and cabin strength that meets the requirements of UN

ECE Regulation No. 29 ProductivityHeavy Plan Vehicle

23 Estimated average age of: 34 BUSES

11.6 YEARS (29.4% manufactured before 2003) HEAVY RIGID TRUCKS

15.6 YEARS (41.4% manufactured before 2003) ARTICULATED TRUCKS

11.8 YEARS (27.8% manufactured before 2003) Table 3: Exhaust emissions based on year of manufacture 36

Year Emission PM NOx Standard Test Limit Multiple Test Limit Multiple Pre–1996 None 1.2 x120 16.0 x40 (Euro 0)

Pre–2003 ADR70/00 0.4 x36 7.6 x28 (Euro I)

Pre–2008 ADR80/00 0.1 x10 5.0 x13 (Euro III)

Pre–2011 ADR80/00 0.02 x2 3.5 x9 (Euro IV)

2011 ADR80/00 0.02 x2 2.0 x5 (Euro V)

Not yet ADR80/00 0.01 x1 0.4 x1 known (Euro VI)

Notes: • Exhaust emission levels are measured as g/kWh (grams per kilowatt hour). • Data for pre-1996 is an average. 35 Figure 5: Major non-conformity vs vehicle age • Data for other years assumes engines are built to applicable Euro standard. 2020–2025

34 Australian Bureau of Statistics, 2018, 9309.0 - Motor Vehicle Census, Australia, 31 January 2019 35 National Heavy Vehicle Regulator, 2017, National Roadworthiness Baseline Survey

Heavy Vehicle ProductivityHeavy Plan Vehicle 36 Truck Industry Council, 2019, Truck Industry Council Budget Submission 2019/20

24 Goal 2: Deliver PBS 2.0 – a modern approach to the PBS scheme

Outcomes we want to achieve The standards review has already Enabling fleet interchangeability commenced, starting with the review From 2007 to 2019, compared to the The PBS scheme is currently structured of tyre management practice and tyre vehicles that would have been otherwise to approve whole combinations (e.g. characteristics—as they relate to different been required to complete the same task, B-double and semitrailer), rather than performance measures—and the review PBS vehicles have: individual vehicle units. These approvals of the Frontal Swing, Directional Stability are specific and do not allow for • reduced CO₂ emissions by over Under Braking and Pavement Horizontal simple fleet interchangeability, even 2.2 billion kilograms Loading standards. when it poses no additional safety risk • reduced fuel consumption by over Completing the review of the standards (e.g. swapping compatible prime movers 800 million litres will ensure the PBS scheme reflects if a prime mover is unavailable). • removed over 2,700 trucks from the the highest standards of safety and road Enabling fleet interchangeability would provides further opportunities to improve • reduced truck distance travelled by provide increased flexibility and reduce productivity. over 1.6 billion kilometres costs and inconvenience to industry. • reduced major crashes per kilometre This approach would need to be Pre-advised designs and PBS by 46 per cent. 37 carefully designed and incrementally blueprints introduced to preserve confidence in The success of the PBS scheme is a clear The NHVR has worked closely with the safety performance of PBS vehicles statement of Australia’s heavy vehicle industry and jurisdictions to improve currently provided by whole combination industry’s desire to innovate and be regulatory efficiency of the PBS scheme. approvals. smarter. For example, the NHVR introduced the Having administered the PBS scheme pre-advised design approval process in Transition of common and mature since 2013, the NHVR has gained March 2017. 39 designs into the prescriptive fleet important learnings and identified key Since implementation, processing times The PBS scheme was designed to be areas that, when implemented, will further for pre-advised designs have on average a testing ground for innovative heavy enhance and modernise the PBS scheme. reduced from four weeks to three business vehicle concepts, some of which could NHVR-led initiatives that reduce the days. To date, most major designs have transition out of the PBS scheme and time and cost of participating in the PBS been pre-advised by the PBS Review into the prescriptive fleet (e.g. through scheme will incentivise industry uptake Panel, 40 and 90 per cent of all design regulation). For example, the HVNL was and accelerate PBS market representation approvals qualify for the simplified pre- amended on 1 October 2018 to provide in the national fleet. Accordingly, we will advised design approval process. general access to 20m long PBS Level 1 see accelerated growth in the safety, vehicles operating at GML. This approach A PBS blueprint is an approved PBS environmental and economic benefits would assist to increase the uptake of design that allows bypassing early that can be delivered by PBS vehicles. PBS vehicles through greater certainty of stages in the PBS approvals process operation and reducing the cost and time and progression straight through Updating the PBS standards to get vehicles proven to be of minimal to certification (i.e. checking that a risk onto roads. The PBS standards were originally vehicle is built in accordance with the developed in the late 1990s by the NTC, approved design). Most PBS blueprints Given the significant variety and and the modelling and testing procedures are developed by manufacturers. Some complexity of PBS vehicles, the NHVR were approved by the Australian open-access PBS blueprints exist, but will work with governments and industry Transport Council in 2007. The NTC these are not widely used by industry. to identify and prioritise PBS vehicle has recommended that the standards designs that are able to transition into the Pre-advising more PBS blueprints and be reviewed to reform and modernise prescriptive fleet. For unique and more other PBS designs, as recommended by the PBS scheme. 38 They suggested complex vehicle designs, the NHVR will the NTC, 41 will make it cheaper, quicker that a review of the scheme standards seek opportunities, where available, to and easier to get PBS vehicles onto roads, would assist to overcome barriers to enable access through other methods, thereby making the PBS scheme more innovation, increase uptake, and provide such as by notice. attractive to new market entrants. the opportunity to further improve productivity. 2020–2025

37 Austroads, 2014, Quantifying the benefits of Australian High Productivity Vehicles 38 NTC, 2018, Reforming the Performance Based Standards Scheme 39 A pre-advised PBS design is a well-known design that has been frequently assessed and approved, and no longer requires further assessment by the PBS Review Panel. 40 The PRP determines whether or not a vehicle meets the performance-based standards approved by the Transport and Infrastructure Council and, if necessary, the national conditions under which a vehicle is to operate to ensure that it continues to comply with those standards once it is on the road. A set of approved business rules, performance standards, vehicle assessment rules and other governing documents ensure the panel operates in a transparent and nationally consistent manner.

41 NTC, 2018, Reforming the Performance Based Standards Scheme ProductivityHeavy Plan Vehicle

25 PBS manufacturer self-certification Around 80 manufacturers are involved in supplying PBS vehicles and equipment. With a compound annual growth rate of 28 per cent since 2007, enabling manufacturers to self-certify 42 the PBS vehicles they design and build will accelerate this growth, and make it quicker, easier and cheaper to deploy a PBS vehicle onto the road network. Based upon 2018–19 average certification costs and number of certifications, the NHVR estimates that up to $5 million could be saved annually through manufacturer self-certification. Manufacturers would need to adhere to some form of audit process, like the Figure 6: Growth in the PBS scheme has accelerated since coming under the Commonwealth Government’s Single Unit administration of the NHVR in 2013 Type Inspection (SUTI) or the National Heavy Vehicle Accreditation Scheme.

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Complete the review of the standards in the PBS Commonwealth Increase in safer, cleaner and more productive   scheme under the PBS marketplace review* Government vehicles and technologies in the national heavy State and territory vehicle fleet Continue to implement improved systems and transport agencies Reduced time and cost to participate in the PBS processes that incentivise industry uptake and scheme accelerate growth in the PBS scheme* NTC Industry Reduced administrative and regulatory burden to   participate in the PBS scheme Reduced average vehicle age Growth in PBS vehicle market share (relative to equivalent vehicle type)

*Subject to funding 2020–2025

42 Currently under the PBS scheme Vehicle Certification Rules, manufacturers can only issue manufacturer’s certificates for vehicles built in accordance with a previous certification by a PBS Approved

Heavy Vehicle ProductivityHeavy Plan Vehicle Certifier (i.e. based on previously approved concepts). The current process does not allow for manufacturer self-certification of new concepts.

26 Goal 3: Promote awareness of planning and design for modern and safer vehicles

Outcomes we want to achieve Planning that supports heavy vehicles Common design deficiencies include: narrow lanes, inadequate driveway While land use, transport and Governments are responsible for designs, insufficient lot size, rear of infrastructure planning is not an NHVR managing growth and change through vehicles protruding into oncoming traffic responsibility, industry has requested that planning that balances the social, because of short turn-pocket space, and the NHVR play a more active role in this environmental and economic needs and small intersections requiring vehicles to space. aspirations of their communities. veer onto the wrong side of the road to The NHVR’s role would be focused Heavy vehicle access and productivity make turns. on supporting the Commonwealth are dependent upon zoning and Many industrial and commercial Government, state and territory transport development being appropriately located developments and roads were agencies and local government to and serviced by the right infrastructure. constructed for historically smaller improve planners’ and the community’s Local policies should also support the and lighter vehicles. Continued use of understanding of the requirements of local freight task and safeguard freight- outdated design standards will mean heavy vehicles and road freight. related operations, particularly those land and infrastructure will increasingly operating overnight or 24 hours a day to It is also important to partner with fail to accommodate innovation in the serve the community. industry and government to build the heavy vehicle fleet. 43 social licence of road freight. Improving The NHVR is aware of cases where community acceptance and building truck bans and curfews have been relationships will make it easier for implemented in industrial and industry to operate efficiently. commercial areas because of adjacent Case study: Victoria Heavy residential development and communities Vehicle Network Access This initiative aligns with Recommendation misunderstanding the freight task and the 5.3 of the Commonwealth Government’s Considerations impacts of heavy vehicles. Inquiry into National Freight and Supply The Department of Transport, Chain Priorities report: These decisions impact productivity, can Victoria has developed a Road increase the cost of goods and services Design Note for heavy vehicle “Raise awareness of the for the community, and may affect road access considerations.43 importance of freight and logistics operations for domestic and The Road Design Note contains international supply chains. An increased guidelines that must be considered the need for appropriate risk to safety, infrastructure and amenity on all new road and road upgrade planning, development may eventuate when the opposite effect projects during the design phase approval conditions, protection was desired. along corridors used by heavy and regulatory regimes in the vehicles. They outline the minimum Resilient and reliable infrastructure requirements that should be government sector, particularly adopted to ensure the current and During the consultation process, industry future performance of the network land use and transport and government indicated that heavy for large and heavy vehicles. planners, environmental vehicle access was refused, even within regulators and developers, industrial and commercial areas (often Proactive initiatives from planners where key gateways are located), due and infrastructure providers, through formal and informal to substandard site and road design. such as this Road Design Note, education.” Importantly, examples were provided contribute to progressive and where everyday general access heavy suitable updating of road networks. vehicles (e.g. waste removal trucks) and Accordingly, access is expanded emergency vehicles (e.g. fire engines) over time to accommodate larger could not service properties safely and and more modern vehicles that are effectively because of inadequate site safer, more productive and better and road designs. for the environment. 2020–2025

43 Department of Transport, 2019, Road Design Note 04-01: Heavy Vehicle Network Access Considerations, Victorian Government ProductivityHeavy Plan Vehicle

27 Case study: Upgrading time, deliver significant improvements infrastructure to unlock the potential to safety and environmental of freight networks sustainability (refer Appendix 7). An important example of planning and Upgrading freight networks to safely design to unlock the potential of accommodate the length and mass freight networks is upgrading B-double of higher categories of freight vehicles networks to be able to accommodate will lead to significant productivity PBS Level 2B vehicles, such as the 30m benefits for industry and, at the same A-double.

Heavy vehicle combination types Length (m) Network GCM (t) Nominal Payload Trips per Trip Savings Access Payload (t) Efficiency 10,000 (t) (%)

B-double ≤ 26 68.5 43.5 1.62 230 39 network

≤ 30 PBS Level 2B 85.5 63.8 2.39 157 59

Estimated Action Horizon Action Key Partners Performance Outcomes 20‒22 23‒24 25‒ Support governments and industry to build the social Commonwealth Improved knowledge of the heavy vehicle fleet and    licence of road freight among governments and Government heavy vehicle performance communities State and territory Improved understanding of the freight task and freight transport agencies supply chains Support and encourage governments to update    planning and design standards to support modern Road managers Increased network accessibility for safer, cleaner and heavy vehicles Industry more productive vehicles 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

28 Appendix 1: Online webinar registrations

Road managers and local government Hornsby Shire Council VicRoads associations Horsham Rural City Council Wagga Wagga City Council Inverell Shire Council Wattle Range Council Adelaide Plains Council Ipswich City Council West Wimmera Shire Council Bass Coast Shire Council Kingsborough Council Whyalla City Council Barunga West Council Launceston City Council Wollondilly Shire Council Baw Baw Shire Council Leeton Shire Council Yarra Ranges Council Bega Valley Shire Council Light Regional Council Boral Australia Liverpool Plains Shire Council Industry and industry associations Brisbane City Council Local Government Association of Buloke Shire Council Active Supply Chains Asia Pacific Tasmania Brimbank City Council Advance Sweepers Logan City Council Cardinia Shire Council AHG Refrigerated Logistics Maitland City Council Cassowary Coast Regional Council Bunzl Australasia Maribyrnong City Council City of Ballarat Craig Arthur Pty Ltd Maroondah City Council City of Burnside Endeavour Energy Mildura Rural City Council City of Charles Sturt Ergon Energy Moreton Bay Regional Council City of Greater Bendigo Essential Energy Mornington Peninsula Shire Council City of Greater Dandenong Fennell Forestry Municipal Association of Victoria City of Greater Geelong Fleet Plant Hire Pty Ltd Nillumbik Shire Council City of Hobart Grain Growers Ltd Northern Grampians Shire Council City of Latrobe Hanson Australia Office of Environment and Heritage, New City of Melton JMA Engineering South Wales City of Mitcham Kennedy Express Port of Brisbane Pty Ltd City of Port Adelaide Enfield Killen Trucking Company Pyrenees Shire Council City of Port Phillip LINX Cargo Care Group Redland Shire Council City of West Torrens Longmuir Transport Services Road and Maritime Services, New South Clarence City Council McArdle Freight Wales Clarence Valley Council PepsiCo Australia & New Zealand Rockhampton Regional Council Colac Otway Shire Council Phoenix Transport Rural City of Wangaratta Coolamon Shire Council Qube Holdings Ltd Shire of Wellington Department of State Growth, Tasmania Queensland Trucking Association South Gippsland Shire Council Department of Transport and Main Rapid Haulage Surf Coast Shire Council Roads, Queensland Rocky’s Own Transport Swan Hill Rural City Council Derwent Valley Council SPC Tablelands Regional Council Devonport City Council Stef’s Transport Pty Ltd Tasmania Parks and Wildlife Service District Council of Loxton Waikerie SunRice Tatiara District Council East Gippsland Shire Council Toll Group Tenterfield Shire Council Flinders Ports of South Australia Transport Auditing Toowoomba Regional Council Gibsons Groundspread Vellex Towong Shire Glen Eira Shire Council Western Suburbs Concrete Town of Gawler Glenelg Shire Council Other individuals (7) Transport for New South Wales Greater Hume Council Other private entities (14) Transurban Griffith City Council 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

29 Appendix 2: Pre-submission consultation register

Commonwealth, state and Local Government Association territory government of Queensland Local Government Association Department of Infrastructure, of South Australia Transport, Cities and Local Government Association Regional Development, of Tasmania Commonwealth Local Government New South Department of Planning, Wales Transport and Infrastructure, Maribyrnong City Council South Australia Moree Plains Shire Council Department of State Growth, Municipal Association of Tasmania Victoria Department of Transport, Naracoorte Lucindale Council Victoria Port Augusta City Council Department of Transport and Port of Brisbane Pty Ltd Main Roads, Queensland Shoalhaven City Council Main Roads Western Australia Walcha Council Regional Development Victoria Industry and industry Road and Maritime Services, associations New South Wales Transport Canberra and City AgForce Services Australian Livestock and Rural Transport for New South Transporters Association Wales Australian Logistics Council VicRoads Australian Trucking Victoria Cross Border Association Commissioner Centurion DP World Australia Non-jurisdictional road Grain Growers Ltd managers and local Queensland Transport and government associations Logistics Council Queensland Trucking Adelaide Plains Council Association Albury City Council Qube Holdings Ltd Australian Local Government Road Freight NSW Association Ron Finemore Transport Brimbank City Council Toll Group Brisbane City Council Victorian Transport City of Greater Dandenong Association City of Marion City of Port Adelaide Enfield Other associations District Council of Cleve District Council of Streaky Bay Institute of Public Works Forbes Shire Council Engineering Australasia Inner West Council Roads Australia Kyogle Council Transport Certification Light Regional Council Australia 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

30 Appendix 3: Formal submission register for the draft Plan

Submitter (listed by name) Submitter Type Australian Livestock and Rural Transporters Industry Association Association Australian Logistics Council Industry Association Australian Trucking Association Industry Association Brisbane City Council (Queensland) Local Government Chris Wong Private Individual City of Ballarat (Victoria) Local Government City of Gold Coast (Queensland) Local Government Gas Energy Australia Industry Association Hindmarsh Shire Council (Victoria) Local Government Institute of Public Works Engineering Australasia Professional Association (NSW) Local Government Association of Queensland Government Association Local Government New South Wales Government Association National Farmers' Federation Industry Association National Road Transport Association Industry Association Queensland Transport and Logistics Council Industry Association The Department of Transport and Main Roads State/Territory (Queensland) Government Toll Group Industry Town of Port Hedland (Western Australia) Local Government Transport Certification Australia Government Association Transport for New South Wales State/Territory Government Victorian Farmers' Federation Industry Association Wynhdam City (Victoria) Local Government Name withheld Submitted in confidence 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

31 Appendix 4: Alignment with government initiatives

The Plan aligns with and complements Heavy Vehicle Access Policy The NHVR participated in the workshops the heavy vehicle and road freight Framework and provided a submission, articulating initiatives identified by the NHVR’s its view on data sources, data gathering, In April 2020, the Transport and government partners, inclusive of how data management and data sharing. Infrastructure Senior Officials’ Committee the NHVR intends to implement aspects The Commonwealth Government is (TISOC) agreed that the jurisdictions of agreed recommendations where it currently considering this feedback would develop a scoping document for is a relevant and suitably responsible along with other submissions. The the staged development of a National party. Importantly, the Plan also confirms NHVR will continue to engage with the Heavy Vehicle Access Policy Framework, the NHVR’s commitment to supporting Commonwealth Government to explore which would set out a national vision, government partners to deliver some opportunities to contribute and benefit goals and principles to achieve a national of their initiatives. Refer to Figure 7 for from the development of the Freight Data harmonised access policy. primary reference material. Hub. TISOC also agreed that the Framework Of note is that government documents would be scoped and drafted in The Heavy Vehicle Road Reform collectively recognise the significance of consultation with industry, local heavy vehicles in supporting the growing The Heavy Vehicle Road Reform (HVRR) 47 government, the NTC and the NHVR. freight task and predominantly focus on is a Commonwealth Government led infrastructure outcomes to improve road The NHVR welcomes this opportunity to program that is exploring “demand side” freight productivity. The NHVR is not an work with all its stakeholders. A shared reforms (changes aimed at influencing infrastructure provider but supports the and collaborative commitment will consumption of road services) and continuation of government infrastructure deliver improved access and productivity “supply side” reforms (changes to the investment. outcomes for industry nationally. way in which road services are provided). The Productivity Commission warns The Commonwealth Government is Freight Data Hub that infrastructure alone will not be currently working with state and territory enough to support road freight in The Commonwealth Government has transport agencies to improve data Australia, 44 and first and last mile funding committed $8.5 million to improve quality and availability, and transparency remains a significant challenge for national freight data, 46 which will help around road spending, road assets and local government. 45 The Plan therefore business and governments plan and levels of service for heavy vehicle road proposes non-infrastructure initiatives make better operational and investment users. within the NHVR’s ambit to support and decisions. Better freight data will enhance It has led numerous forums nationally to complement government infrastructure the efficiency of Australia’s freight supply consult with governments and industry investment. chain, and benefit the community and on the development and progress of economy through higher productivity. the HVRR. The NHVR participates at As part of the consultation process, the request of the Commonwealth the Commonwealth Government Government, and will continue to be held workshops in Melbourne and available, as required, to contribute to, released the 2019 Discussion Paper and benefit from, the development of the seeking submissions to inform design HVRR. considerations for the Freight Data Hub. 2020–2025

44 Productivity Commission, 2017, Shifting the Dial: 5 year productivity review, Australian Government 45 Australian Local Government Association, 2019, 2019 Local Government Roads and Transport Agenda 46 Department of Infrastructure, Transport, Regional Development and Communications, The National Freight Data Hub, www.infrastructure.gov.au/transport/freight/national-freight-data-hub/index.aspx [viewed 11 May 2020]

Heavy Vehicle ProductivityHeavy Plan Vehicle 47 Transport and Infrastructure Council, Heavy Vehicle Road Reform Phase One, www.transportinfrastructurecouncil.gov.au/publications/heavy_vehicle_road_reform_phase_one [viewed 11 May 2020]

32 33

Heavy Vehicle Plan Heavy Productivity Figure 7: Primary reference material that has informed the Heavy Vehicle Productivity Plan 2020‒2025 Plan Productivity Vehicle Heavy the informed has that material reference Primary 7: Figure 2020–2025

Un

Supply Chain Strategy Strategy Chain Supply

August 2019 August

August 2019 August

National Action Plan Action National

and Freight National

National Freight and Supply Chain Strategy Strategy Chain Supply and Freight National

Appendix 5: Understanding heavy vehicle access under the NHVR

Understanding heavy vehicle access Road managers Third-party approvals are outside the scope of the Plan and fall under the remit Heavy vehicles provide a critical link in Road managers include road authorities, of the HVNL Review or review of other the end-to-end supply chain process for local governments and other road laws outside of the HVNL. the movement of goods and services owners (e.g. ports, airports and toll road across Australia and internationally. operators). Access by permit Heavy vehicles require access to the road Road managers are responsible for network and they can either be a general Permits are a legal instrument issued to deciding whether or not to provide access vehicle or a restricted access specific operators that provide access for consent to restricted access vehicles vehicle. certain restricted access vehicles to roads seeking to operate on roads under their approved by road managers. Permits Simply put, general access vehicles responsibility. may contain conditions of access that comply with mass and dimension The NHVR is not a road manager. Under must be adhered to by operators. requirements of the HVNL and have the HVNL, it is unable to make an access access to the full road network unless The HVNL outlines the legal requirements decision without road manager consent signposted otherwise. for the application, assessment and and cannot overrule the decision of a issuing of permits and the types of Restricted access vehicles do not comply road manager. conditions that may be applied. with mass and dimension requirements of the HVNL and must only operate Route assessment Permits are the preferred method of on roads under a mass or dimension providing access for high-risk movements. Road managers may conduct route authority (e.g. a notice or permit). Permits are also the preferred method assessments to determine whether or not of providing access for low-volume Mass and dimension authorities require to issue consent. movements, as they are also more the consent of relevant road managers The range and complexity of restricted flexible and easier to change than notices (i.e. the road owner), and typically some access vehicles, their mass and and do not need to undergo the notice level of assessment is conducted prior dimension, the varying condition and development process under the HVNL. to an issue of consent, to ensure the knowledge of infrastructure, differing movement does not come at risk to public systems and processes, and the depth of Access by notice safety, public amenity or infrastructure. experience of road managers all combine Notices are an instrument that provides to present a challenge to undertaking Types of restricted access vehicles access to gazetted networks or areas route assessments and making access approved by road managers. Notices The HVNL currently provides for three decisions. apply to any operator and, similar to classes of restricted access vehicles. permits, provide access only to certain The NHVR has developed a chart that Third-party entities types of restricted access vehicles and illustrates the most common heavy Third-party entities are sometimes may contain conditions of access that vehicle types for each class as defined by required by laws outside of the HVNL must be adhered to by operators. the HVNL. to provide approval or be consulted if a The HVNL outlines the legal requirements The chart is not a comprehensive heavy vehicle exceeds certain mass or for the development of notices and the representation of the Australian heavy dimension limits. consultation process with road managers. vehicle fleet and is provided for guidance Examples of third parties include police, Notices require only a single initial only. The chart is located on the NHVR toll road operators and rail infrastructure consent by road managers that lasts for website. managers. the notice duration (typically five years). Road managers may change their consent status or conditions of access for notices by writing to the NHVR. 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

34 Permit Consent Workflow

Complete application Respond to Respond to Receive and lodge via requests for requests for notification NHVR Portal information information or permit Customer Fax and mail still available

Assessment of As per the Perform vehicle, routes HVNL, the Facilitate Review Prepare quality check and road NHVR must information responses in notification of application managers seek consents requests NHVR Portal and send (RM) from the RM

RM provides RM has up to 28 RM assesses if consent or days or request network is an extension if a refusal suitable for route assessment response via vehicle Road Manager is needed NHVR Portal

A road manager can be a Road Authority or a local government authority Figure 8: Flowchart of the NHVR permit process

Permit Consent Workflow

Complete Receive application notification and lodge via or permit Customer NHVR Portal

Review Perform application Prepare quality check against notification of application pre-approval and send agreement

Receive notification or permit Road Manager

FigureA road 9:manager Pre-approved can be a Road access Authority permit or a localflowchart government authority 2020–2025 Heavy Vehicle ProductivityHeavy Plan Vehicle

35 Appendix 6: Heavy vehicle data acquisition and enrichment under the NHVR

Prior to the existence of the NHVR, there The NHVR will continue to invest in The Safety and Compliance Regulatory was limited capturing and sharing of enhancing the NHVR Portal and the Platform heavy vehicle related information across SCRP, developing other complementary The SCRP provisions core regulatory and borders. front- and back-end systems and data safety functions within the NHVR, and acquisition and enrichment programs The NHVR Portal and the Safety and enables the NHVR to securely receive as required to advance its regulatory Compliance Regulatory Platform (SCRP) and store safety and compliance-related capability as a modern regulator. comprise the main data-collection and data with industry and government sharing channels between the NHVR and stakeholders. The NHVR Portal its government and industry stakeholders. The SCRP currently focuses on nationwide The NHVR Portal was first launched to The NHVR Portal and the SCRP form part information about Australia’s heavy industry in August 2016, with road manager of an advanced technology ecosystem vehicle fleet (e.g. vehicle registration and support provided in October 2017. within the NHVR. Their information configuration), sightings and movements warehousing is agnostic and does The NHVR Portal moved applications and (e.g. collected by real-time monitoring not limit any type of interfacing or permits from a paper-based environment cameras), and drivers and operators integration, ensuring they remain current to an integrated online experience, (e.g. driver history and participation in and interoperable with future internal and allowed the NHVR, industry and the National Heavy Vehicle Accreditation and external data sources and digital road managers to interact on the same Scheme). products. platform for the first time. The SCRP provides the first unique Continuing to enhance the NHVR’s Over 99 per cent of applications and national picture of the heavy vehicle fleet, digital and data capabilities—including permits are delivered through the NHVR compliance and assurance information, expanding the functionality of the Portal, making it a valuable database and will deliver national visibility of heavy NHVR Portal and SCRP to give users of information on approved and refused vehicle movements across Australia. broader and open access to unique routes for different types of restricted The NHVR will continue to invest in the information collected by the NHVR, and access vehicles. SCRP to grow its intelligence and expand developing complex tooling with analytics the program to include data on road Data from over 150,000 applications capabilities—is a key element of the Plan, accidents, traffic volumes and congestion. by industry has been captured since to deliver improvements to access and implementation of the Customer Module productivity. in May 2016.

NATIONAL HEAVY VEHICLE REGULATOR

Making it easier to do business

Apply for Apply for Manage View fleet Apply for Vehicle Performance your Registration Access Standards Based Accreditation details Permits exemption Standards 2020–2025

www.nhvr.gov.au Heavy Vehicle ProductivityHeavy Plan Vehicle

36 Appendix 7: The Performance Based Standards scheme

First introduced in 2007, the PBS scheme Originally administered by the NTC • reducing CO₂ emissions by over is a world-leading program providing and managed by the NHVR since 2.2 billion kilograms industry with the opportunity to innovate 2013, it provided an economic value • reducing fuel consumption by over vehicle design to improve productivity of $185 million to $326 million during 800 million litres by 15–30 per cent. The PBS scheme 2014–2019. 48 The future economic • removing 2,700 trucks from the road is voluntary and complements the value is projected to be $800 million to • reducing truck distance travelled by prescriptive regulatory system for heavy $1.5 billion from 2014–2030. 49 over 1.6 billion kilometres vehicles. • reducing major crashes per kilometre There have been more than 18,000 by 46%. 50 PBS vehicles are designed and built separate PBS approvals (trucks, trailers to perform their tasks as safely and and buses), which together make up Table 4: Approved PBS levels and their sustainably as possible. They are more than 9,000 PBS combinations. In equivalently performing prescriptive assessed against 16 vehicle performance 2017, approximately one in six new heavy vehicles and infrastructure protection standards vehicles was PBS approved. In 2018, this to ensure they are safe (Figure 10). increased to approximately one in five. Approved Equivalent prescriptive vehicle Every vehicle is assessed against these PBS Level Growth in the use of PBS vehicles standards by an authorised PBS Assessor on roads has resulted in significant PBS Level 1 Similar to general access vehicle via a computer simulation, or physical productivity, safety and sustainability testing. PBS Level 2 Similar to 26m B-double benefits for industry and the community. Depending on the assessment results, a From 2007 to November 2019, compared PBS Level 3 Similar to Type 1 Road train vehicle can be assigned one of four PBS to the vehicles that would have been levels (Table 4). otherwise required to complete the same PBS Level 4 Similar to Type 2 Road train task, the PBS scheme has benefited Australia by:

Startability Powertrain standards Gradeability (A, B) Acceleration Capability Frontal Swing, Maxima of Difference, Difference of Maximum Low-speed performance Tail Swing Low Speed Swept Path Steer Tyre Friction Demand Static Rollover Threshold Safety standards Vehicle stability Directional Stability Under Braking Rearward Amplification High Speed Transient Offtracking High-speed performance Tracking Ability on a Straight Path Yaw Damping Coefficient Pavement Horizontal Loading Pavement Vertical Loading Infrastructure standards Bridge Loading (Tier 1, 2, 3)

Figure 10: PBS vehicle performance and infrastructure protection standards 2020–2025

48 Chow, M., Kleyer, H. and McLeod, B., 2019, Economic benefits of heavy vehicle regulatory reform, HoustonKemp Economists 49 Ibid

50 Austroads, 2014, Quantifying the benefits of Australian High Productivity Vehicles ProductivityHeavy Plan Vehicle

37 1,000,000 km saving 5000 500

12,615 5 2000 00 10,368 0 9,864

000 8,127 00 25 8,114

6,317 20 6,364 000 200 4,522 4,959 3,376 3,561 000 2,235 2,643 2,751 00 2 2,254 1,744 1,763 1,358 2 961 491 733 2 5 0 0 70 73 252 324 450 575 899 918 1,398 1,405 1,750 1,750 The factor and methodology from the Austroads Research Report AP-R465-14 (Quantifying the Benefits of High Productivity Vehicles) has been used with the number for approved PBS combination to quantify the benefits achieved from PBS.

Figure 11: Productivity and congestion benefits of PBS vehicles (2007–2019)

Combination 1,000,000 km numbers saving 15,000 2,700 PBS combinations

Estimated fuel (1,000,000L) saved 2,29 2,400 12,500 Estimated CO (1,000,000kg) saved 2,100 1,9 Estimated cumulative fuel (1,000,000L) saved 9,864 10,000 1,800 Estimated cumulative CO (1,000,000kg) saved 1,29 8,114 1,500 7,500 881 1,200 6,364 4,959 5,000 843 900 633 3,561 564 600 456 2,500 359 282 210 300 153 203 170 101 105 134 38 57 76 0 0 PBS combinations 2020–2025 70 73 252 324 450 575 899 918 1,398 1,405 1,750 1,750 added 1. The factor and methodology from the Austroads Research Report AP-R465-14 (Quantifying the Benefits of High Productivity Vehicles) has been used with the number for approved PBS combination to quantify the benefits achieved from PBS. 2. Rated fuel burn used from ATA - TAPs - Truck Impact Chart September 2016. 3. Diesel to CO₂ conversion rate of 2.68kg per litre used.

Figure 12: Environmental benefits of PBS vehicles (2007–2019) Heavy Vehicle ProductivityHeavy Plan Vehicle

38 About the NHVR Disclaimer The establishment of the National Heavy Vehicle Regulator While every care has been taken in preparing this publication, (NHVR) was agreed upon under an intergovernmental the NHVR accepts no responsibility for decisions or actions agreement between all Australian governments. It formally taken as a result of any data, information, statement or advice, opened for business on 21 January 2013. expressed or implied, contained within. To the best of our knowledge, the content was correct at the time of publishing. As Australia’s dedicated, statutory regulator for all vehicles over 4.5 tonnes 51, the NHVR provides leadership and drives Interpreter service statement sustainable improvements to safety, productivity and efficiency outcomes across the heavy vehicle transport sector and the The NHVR is committed to providing accessible services to Australian economy. people from all culturally and linguistically diverse backgrounds. If you have difficulty understanding this document, please The NHVR’s purpose and functions are established by the Heavy contact us and we will arrange an interpreter to communicate it Vehicle National Law Act 2012 (Qld), and its activities are guided to you. by its statutory mandate. Accordingly, the NHVR seeks to ensure public safety, to Contact information manage the impact of heavy vehicles on the environment, road For further information about the Heavy Vehicle Productivity infrastructure and public amenity, and to encourage innovation, Plan 2020-2025 or the NHVR’s activities, functions and services, productivity and safety. To do this, the NHVR works in partnership please visit our website or contact us via: with the Commonwealth Government, its state and territory Email: [email protected] counterparts, local governments, other agencies, industry and Phone: 1300 MYNHVR (1300 696 487) industry bodies. PO Box 492, Fortitude Valley QLD 4006 2020–2025

51 A heavy vehicle is defined in the Heavy Vehicle National Law (HVNL) as a vehicle that has a gross vehicle mass (GVM) or aggregate trailer mass (ATM) of over 4.5 tonnes. ProductivityHeavy Plan Vehicle

39 For further information about the NHVR’s activities, functions and services, please visit our website or contact us via:

National Heavy Vehicle Regulator PO Box 492 Fortitude Valley Qld 4006

P 1300 MYNHVR (1300 696 487) E [email protected] www.nhvr.gov.au

Photo credits: Daimler, Fonterra Co-operative Group, John Deere, Jonathan Wood Photography, Paccar, Toll Group, Volvo Group.

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