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PROJECT BRIEF: Exploring the Costs, Benefits and Opportunities in Using Electronic
Regulatory Documentation
1. PROJECT DEFINITION
a) Background
The transport and logistics sectors are making and are expected to make still greater use of
electronic documentation in the coming years. Industry is particularly concerned that
governments make greater use of electronic regulation and products to make their compliance
task simpler.
Governments are sponsoring the development of Electronic Work Diaries (EWD) to replace
written work diaries. Industry groups are advising the NTC that there is a need for
governments also to provide:


Electronic maps highlighting
o national heavy vehicle access routes (proposed by the Australian Trucking
Association), also encompassing:
 restricted bridge and height routes
 speed zones.
Dangerous goods (proposed in response to the NTC’s Strategic Framework Review of
the Regulation of Land Transport of Dangerous Goods 2012-13).
b) What is the problem that needs to be addressed



Making compliance easier by making full use of available technology
Improving regulatory efficiency by providing e-services
Improving safety, particularly for emergency service workers responding to
dangerous goods incidents.
c) Project objectives
Explore potential uses for electronic documents, such as permits and notices/approvals, in
road and rail heavy vehicles, and make policy recommendations.
The project and outputs are co-developed with governments and industry.
d) Desired outcomes and what will success look like
To be determined.
e) Project scope and exclusions
Project scope should encompass:
 electronic manifests for dangerous goods
 electronic maps (as described above)
 additional uses suggested by stakeholders
o eg. a national mapping system enabling automated assessment of routes based
on risk factors established by road managers
 researching the costs and benefits of substituting electronic for paper forms.
Out of Scope: EWDs (this work is proceeding in other projects).
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f) Constraints and assumptions
The development of network maps that facilitate rapid, simple assessment of available routes
for higher productivity vehicles will require improved road network condition data.
Current barriers to the use of a single geospatial road network map include jurisdictional
duplication an absence of good road asset condition data (with sufficient granularity) and
sufficient granular data on road network condition, such as bridge loading safety factors.
g) Key stakeholders





Jurisdictions
Transport and road agencies
Dangerous goods authorities
Industry groups and peak bodies
Telematics industry.
h) Interfaces and related projects
The project relates to NTC’s strategic objectives, particularly improving safety outcomes by
improving access to important information about dangerous goods and the security of
documentation relating to those goods. These improvements could, in turn, improve the
safety of emergency workers.
Specifically, the project relates to the NTC’s project to Provide Advice and Changes to the
Heavy Vehicle National Law relating to the use of EWDs.
i) Risks and opportunities
Legal advice may counsel governments not to produce electronic maps, so securing
government support for the production of electronic maps is a potential risk.
2. PROJECT APPROACH
The project team or an external consultant/s will develop an internal paper about the potential
costs and benefits of substituting electronic for paper forms in a variety of contexts. This
paper will be circulated to industry and governments for comment. This may lead to
recommendations for developing specific penalties or sanctions for TISOC and TIC
consideration.
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PROJECT BRIEF: Identify opportunities to improve heavy vehicle speed management
under the Heavy Vehicle National Law including penalties
1. PROJECT DEFINITION
a) Background
Through NTC’s strategic planning and work program development process during 2013/14,
the Australian Trucking Association submitted a candidate project with the outcome that
enforcement officers could ground heavy vehicles if the vehicles were detected at 15 km/h
over posted speed limits. In addition, Natroad proposed that the “3 strikes” policy be widely
used in Australia.
The NTC captured these industry proposals under the title “Identify opportunities to improve
heavy vehicle speed management under the Heavy Vehicle National Law including
penalties”.
b) What is the problem that needs to be addressed
NTC data1 shows that:



rigid trucks or buses: 15 to 20 per cent speeding, 5 to 8 per cent having an excess
speed of 5 km/h or greater, and 2 per cent having an excess speed of 10 km/h or
greater
articulated trucks: approximately 40 per cent speeding, 10 to 15 per cent having an
excess speed of 5 km/h or greater, and 2 per cent having an excess speed of 10 km/h
or greater
B-doubles: 25 to 50 per cent speeding, 10 to 15 per cent having an excess speed of 5
km/h or greater, and 1 per cent having an excess speed of 10 km/h or greater.
c) Project objectives
Explore potential sanctions and penalties for excessive speeding by heavy vehicles.
The project and outputs are co-developed with governments and industry.
d) Desired outcomes and what will success look like
To be determined.
e) Project scope and exclusions
Excessive speeding over the posted speed limit by heavy vehicles.
Out of Scope: light vehicles.
f) Constraints and assumptions
The issue of speeding penalty levels and, specifically, their alleged severity has been not
raised during a Penalties Project that was recently completed. Any further review of penalties
will, therefore, require a substantial justification.
g) Key stakeholders
1
http://www.ntc.gov.au/filemedia/Reports/HVSpeedComDraftPropRISDec2006.pdf
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Stakeholders include jurisdictions, transport and road agencies, enforcement agencies,
industry bodies, operators and heavy vehicle drivers.
h) Interfaces and related projects
The project relates to NTC’s strategic objectives, particularly improving safety outcomes by
improving speed management and enforcement.
i) Risks and opportunities
To be developed.
2. PROJECT APPROACH
The project team will develop an internal paper about the potential additional penalties and
sanctions for excessive speeding by heavy vehicles. This paper will be circulated to industry
and governments for comment. This may lead to recommendations for developing specific
penalties or sanctions for TISOC and TIC consideration.
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PROJECT BRIEF: HEAVY VEHICLE DRIVER FATIGUE DATA
1. PROJECT DEFINITION
a) Background
The driver fatigue provisions in the Heavy Vehicle National Law include maximum work and
minimum rest requirements. These limits are important for safety, and whilst existing data
indicates crashes where fatigue was the main causal factor have been reducing, fatigue
remains a significant crash risk for the industry.
Previous projects have examined various aspects of the fatigue regime, in particular the rules
for counting time. Governments could not agree on changes to the current rule and indicated
the need for better data to understand the current situation and support future policy
decisions.
Transport Ministers at their May 2014 meeting agreed that the NTC and the National Heavy
Vehicle Regulator (NHVR) should collaborate with industry and governments to develop a
national framework to collect real-life operational data to better inform broader fatigue policy
directions in the future, including (but not limited to) so-called ‘nose-to-tail schedules’. This
would involve analysis of the work diaries/shifts associated with recorded incidents.
Capturing this information over longer timeframes would provide more informative data than
that currently available.
b) What is the nature and size of the problem being addressed
According to the latest NTI accident research report, fatigue is a cause of 11.9% of heavy
vehicle crashes. This figure was significantly down from ten years ago, although had risen
slightly from the previous report.
One of the objects of the project is to better understand the nature and size of the fatigue
problem, and in particular to better understand how particular work schedules contribute to
fatigue-related incidents.
c) Project objectives
This project will identify and analyse what data is required to support policy decisions
making; what data is currently being captured by governments and industry; and how gaps
may be addressed. The project will make recommendations for consideration by TISOC and
Transport and Infrastructure Council.
d) Desired outcomes and what will success look like
A clear framework to gather fatigue data at the national level. A better evidence base to
support judgement on the current fatigue provisions and any future amendments.
e) Project scope and exclusions
The project scope will be developed further through consultation with industry and
government, however will include:


Developing research questions on key fatigue aspects of the current fatigue regime
Research on current data being collected by government and industry
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Data to be examined will likely include:



ALL incident data e.g. from enforcement or insurance
Work diaries and schedule patterns (e.g. from industry or enforcement)
Compliance details (enforcement data on non-compliance among drivers)
f) Assumptions and constraints
This project assumes that enforcement agencies will be willing and able to share data
required. The project may be constrained by technical, legal or cost barriers to data
collection, which will need to be examined as part of the project, along with differences
between jurisdictions.
g) Interfaces and related projects

Legislative forward work program for the Heavy Vehicle National Law

Electronic Work Diary (EWD) project – depending on the data collected this may
have implications for EWDs. Data collected from EWDs may also help inform the
data gathering project.

Ongoing work by the National Heavy Vehicle Regulator (NHVR) on compliance and
enforcement processes

NHVR AFM templates and review

NHVR data strategy

CRC for Alertness, Safety and Productivity.
h) Key stakeholders

Transport Ministers

Freight industry, in particular operators and drivers, but also including suppliers and
receivers.

Governments including road authorities, local councils and the National Heavy
Vehicle Regulator and police.

Fatigue experts.
i) Opportunities and risks
The opportunities include:

Gaining a better understanding of current fatigue data being gathered.

Gaining a better understanding of what data would be required to inform policy
decision making

Creating a better evidence based for future decision making

Ultimately, gaining a better understanding of the fatigue risks for heavy vehicle
drivers
The risks include:

Insufficient relevant data, or prohibitively high costs for gathering the data, necessary
to develop a rigorous evidence-base,
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
The scope of the project is underestimated, leading to greater time, resource and
funding costs,

Differing views on what data should be collected, and what will be useful in terms of
informing future fatigue policy directions

Differences between states and territories make national data collection impractical

Difficulty gathering sufficient data and evidence from currently available sources due
to budget constraints
2. PROJECT APPROACH

Engagement with the NHVR on approach

Engagement (including workshops) with all stakeholders

Develop a project scope in consultation with the NHVR and stakeholders, including a
regulator survey to get initial information on what stakeholders are currently
collecting.

Desk-top research into what data is currently readily available, what will require
funding, and what data is being collected overseas

Seek expert advice on what data collection or studies will be achievable and what is
currently intended for research in the fatigue field

Discussion paper – detailing what data is currently being collected here and overseas,
what data is intended to be collected moving forward, and how that data is intended to
inform future policy decisions (draft framework for data collection)

Public consultation

Develop final report including final framework

Deliver report to Transport and Infrastructure Council
Note that due to the priority given to this project, the NTC will begin consultation on the
more detailed scope shortly, in particular to gain a baseline of data currently being collected.
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PROJECT BRIEF: REVIEW OF THE LOAD RESTRAINT GUIDE
1. PROJECT DEFINITION
a) Background
The Guide contains guidelines and performance standards for the safe carriage of
loads on road vehicles. The Guide is the most popular download from the NTC’s
website and is also referenced globally. The Guide is highly valued because it is a
practical document that is easy to understand and apply.
b) What is the problem that needs to be addressed
Some of the advice in the guide is out-dated. Since the Second Edition of the Load
Restraint Guide was published in 2004, new practices and options for safely securing
and moving loads have been developed. In addition, braking technology in new
vehicles has improved.
Industry reports that enforcement officers in different states, and sometimes the same
state, interpret components of the Guide differently. Industry has provided examples
of inconsistent practice and these are listed in Attachment A.
c) Project objectives
Industry and regulators/enforcement officers expect the updated Guide to be as userfriendly as the current Guide.
d) Desired outcomes and what will success look like
The desired outcomes of the updated Guide will be to:


change industry practices to conform with the Guide, leading to better restraint
of loads and, ultimately, improved safety
promote more consistent enforcement of load restraint regulations
e) Project scope and exclusions
Includes: updating the content of the Guide to reflect current knowledge.
Out-of-scope: The National Heavy Vehicle Regulator is responsible for ensuring
enforcement practices are nationally consistent. This project will not address
inconsistent enforcement practices involving the guide. However, the NTC will
discuss enforcement issues with the NHVR and the Australia New Zealand Policing
Advisory Agency.
f) Constraints and assumptions
The guide contains complex technical information and the NTC will require external
expertise to revise it.
The NTC assumes that government agreement can be reached before 2015, to allow
the updated Guide to be published in 2016 or 2017.
g) Key stakeholders



Jurisdictions
State government enforcement agencies
National Heavy Vehicle Regulator
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

Peak transport bodies and operators
Technical experts on load restraint
h) Interfaces and related projects
No related projects identified to date.
i) Risks and opportunities
Risks include:

Disagreements between stakeholders are not resolved in a timely way and lead to
project timelines slipping.

The scope of the task is underestimated, leading to greater time, resource and
funding costs.
Opportunities:

The updated guide changes industry practices and results in better load restraint
safety.

Help the national regulator and state enforcement agencies to consistently assess
and treat heavy vehicle operators and drivers.
2. PROJECT APPROACH
The options for delivering this project include:
1. NTC to jointly manage the project with a jurisdiction, with the jurisdiction taking
responsibility for updating the content of the guide (as occurred for the 1st and 2nd
editions).
2. NTC to manage the project by outsourcing updating content to a technical consultant.
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Attachment A: Inconsistent enforcement examples of the Guide as reported by
industry

On-road inspectors directing that freight contained behind rated curtains must be
strapped down against the 0.2g upwards requirement.

Large variations between inspectors’ interpretations of acceptable gaps in “fully
contained” loads

Inconsistent rulings on whether side gates should be secured with rope or webbings or
not at all.

Inspectors not appearing to take the pallet type into account in determining lashing
requirements, thus ignoring the crucial role of friction.

There is no regulatory requirement for transport operators to use only AS/NZS
marked load restraint equipment as is the case for all lifting equipment.

Detail of static and dynamic friction influences and examples. This is often a point of
confusion resulting in various interpretations by enforcement agencies.
Attachment B: Potential areas that could be explored in the review
The NTC has listed below the suggestions by stakeholders for areas that should be
considered when updating the Guide:

Vehicle braking technology - has changed and improved significantly.

Development of new restraints systems.

Rulings of OH&S outcomes which the guide should take into consideration (e.g.
cheater bars).

Exploring having a policy that all load restraint equipment is ‘marked’ or ‘rated’ for
its restraining capacity.

Establishing minimum anchor point strength ratings to be identified by vehicle and
trailer manufactures (i.e. ‘body builders’) that could match a range of load restraints
that could be used with that particular body.

Engaging with enforcement officers to ensure there is no confusion in interpretation
of the guidelines and any element cannot be misconstrued into several different
interpretations.

Allowing for innovation outside of what is prescribed in the Guide so it maintain
relevance as industry practices and technologies innovate.

Developing the guide as a searchable e-book, mobile app or web-based tool

Mapping out how the Guide should be applied and used by enforcement, drivers,
operators, consigners, etc.

Clarifying visual enforcement basics, what should enforcement agents be looking for
as fundamentals.

There is little guidance in relation to mixed loads or headboard strength.
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
Attention to get trailer manufacturers (‘body builders’) to ‘rate’ anchor points and
front and side wall strengths.

Recognition of the differences in the safe restraint of fragile and lighter freight.

No ratings on hooks and these impacts the chains which are used.

There is no general section which could be applied as an overview.

Toppling of tall, top heavy freight is barely mentioned and Australia is out of line
with Europe on the requirements

Significant confusion with regards to 1. 0.2g upwards "except where limited vertical
movement is permissible” as there is no definition of "limited" or "permissible". For
example, a tarp over the top of a tipper could avoid a fine but does nothing.

Ensuring the guide aligns with other laws and sections within the guide. For example,
ensuring the placement of the load still allows for the vehicle to be compliant with
wheel-axle mass regulations and linked into OH&S recommendations for safe
restraint and load management.

The safe restraint of machinery and over size mass must not be limited by guidelines
designed to address standard removable loads transport by normal heavy vehicles.

Packing/containment of ISO containers, minimum gaps, SRT (stacking heavy things
at the bottom) and best load placement options.

How load ‘blocking’ can be more cost effective and time saving than restraints alone.

Physical input and manual effort risks including equipment options and choices.

Load rated curtains is a new technology since the Guide was developed.

Rating the strengths of side gates which currently is very vague and open to
misinterpretation

Packaging standards need to be addressed

Restraint containment, some improved clarification.
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PROJECT BRIEF: ENHANCEMENTS TO THE NHVAS MASS MODULE
1. PROJECT DEFINITION
a) Background
The NTC released the Accreditation Policy Review in June 2009 and recommended a review
of National Heavy Vehicle Accreditation Scheme (NHVAS) mass standard.
In the consultation for the strategic planning process, there was stakeholder support for this
candidate project.
b) What is the problem that need to be addressed
It is timely to consider the review the mass management standards.
c) Project objectives
To review the mass management standard and to improve the standard if needed.
d) Desired outcomes and what will success look like
Mass standards are up-to-date.
e) Project scope and exclusions
The project scope includes:

reviewing the mass management standards for the NHVAS, TruckSafe, the Western
Australian Heavy Vehicle Accreditation Scheme, and overseas mass management
schemes,

considering changes to improve the NHVAS mass standard, and

developing a report with recommendations to ministers about the next steps.
The project scope excludes:

Reviewing the NHVAS policy and auditing arrangements (subject to outcomes of the
NHVR review of the NHVAS maintenance module).
f) Constraints and assumptions
This project proposal assumes that there is a gap between the existing standard and bestpractice to warrant a review.
g) Key stakeholders

Road freight industry (drivers, operators and representative associations),

Jurisdictions (including the NHVAS Scheme Owners Group),

Enforcement authorities, and

National Heavy Vehicle Regulator.
h) Interfaces and related projects
The National Heavy Vehicle Regulator (NHVR) is currently undertaking a review of the
NHVAS, focussing the maintenance management module. This review is part of the Heavy
Vehicle Roadworthiness Program which is a joint initiative with the NTC.
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i) Risks and opportunities
Risks include:

Raised expectations from industry about increased mass allowances

Inconsistent application by road managers (jurisdictions and local governments)

Increased complexity in the way industry can demonstrate mass compliance.
Opportunities include:

Industry leading improvements in mass management

Developing additional compliance standards for specific road transport sectors or
vehicle types

Encouraging the adoption of innovative approaches to mass management and
compliance and enforcement.
2. PROJECT APPROACH
Wait until the outcomes of the roadworthiness project by the NHVR and the NTC are known
to help inform the review of the mass management standard.
This project could be undertaken by the NTC or the NHVR. Other resourcing options could
also be considered.
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PROJECT BRIEF: STEER AXLE MASS REVIEW
1. PROJECT DEFINITION
a) Background
This candidate project arose out of NTC’s consultations with the road freight industry. The
proposal has received initial support from NatRoads and the NTC’s Industry Advisory
Group.
The Commonwealth Government is considering whether to adopt the Euro VI standard for
vehicle emissions into the Australian Design Rules (ADR). While proposed revisions will
lead to reductions in the tailpipe emissions, the emissions inhibiting technology tends to
increase the weight (or mass) of heavy vehicles.
If the Commonwealth decides to proceed with a new ADR, it has suggested implementation
times of 1 January 2019 for new model vehicles and 1 January 2020 for existing models.
Austroads has proposed a project to determine the optimum steer axle mass limits that will
accommodate the needs of the transport industry into the future, while ensuring road network
sustainability. The project also includes development of a cost recovery model that will
ensure maintenance of road infrastructure. This project is scheduled to commence in July
2014 and finished by June 2015.
b) What is the problem that need to be addressed
New emissions standards, additional vehicle equipment, stronger axles and operational
requirements for longer-distance fuel tanks are all placing increased weight pressures on
regulated mass limits. These pressures can lead to overloading, which causes damage to the
road, or forces operators to choose between necessary, or valuable vehicle additions,
potentially compromising safety and productivity.
Industry bodies argue that if new weight-adding standards are introduced, an adjustment to
the steer axle mass limit would be required to ensure that trucking operators do not incur
opportunity or other costs for adopting more efficient technology.
Road Managers will be concerned that increase masses will lead to increased road wear,
without additional risk management systems.
c) Project objectives
To make recommendations for consideration by Transport and Infrastructure Senior Officials
Committee (TISOC) and the Transport and Infrastructure Council (the Council) on whether a
mass increase is required to accommodate the adoption of Euro VI standards, and to provide
advice on the implications for operators and road managers.
d) Desired outcomes and what will success look like
Success in this project will mean a precise definition of the nature and scope of the project,
and confirmation of its viability, particularly in relation to work already proceeding in this
area.
e) Project scope and exclusions
The scope of the project encompasses:
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


Considering the outcomes of the Commonwealth decisions and the Austroads project
to determine the overall necessity and parameters of this project.
Consulting jurisdictions, as well as industry bodies ahead of making
recommendations to TISOC and the Council.
Considering the impact of regulatory mass increases on other vehicle axles (e.g. bus
rear axle limits are affected by the same considerations from heavier Euro VI engines
as are truck steer axles).
Exclusions to the scope are:
 Amending the Australian Design Rules (ADRs), as these are administered by the
Commonwealth.
f) Constraints and assumptions
This project assumes that governments wish to pursue emissions and productivity
improvement initiatives, without compromising road infrastructure.
g) Key stakeholders
The industry stakeholders in this project include the ATA, ALC, the Bus Industry Council,
heavy vehicle operators, vehicle manufacturers, Truck Industry Council, and energy
companies (including Gas Energy Australia).
The government stakeholders include the Commonwealth Department of Infrastructure and
Regional Development, state and territory road managers/authorities, the National Heavy
Vehicle Regulator, and Austroads.
h) Interfaces and related projects
This project proposal is part of a broader program of reforms which focus on improving
freight productivity (being considered as part of the NTC work program).
This project proposal directly interacts with the Commonwealth’s decision about the adoption
of the Euro VI standard and the Austroads project (#FS2001) to determine the optimum steer
axle mass limits that will accommodate the needs of the transport industry into the future. It
further interacts with the NHVR projects to:

increase access to road network by vehicle type, and

develop systems and resources to guide, support, and improve the expertise and
effectiveness of decision-making on heavy vehicle access to the road network.
i) Risks and opportunities
This project will require widespread stakeholder support, which may not be achieved.
2. PROJECT APPROACH
Given the current Austroads project and Commonwealth policy considerations, this proposed
project could be placed on hold until the completion, or near completion, of the Austroads
project and the finalisation of the Commonwealth policy decision. At this time the proposed
project brief would be reviewed.
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PROJECT BRIEF: IMPROVED MAINSTREAMING OF INNOVATIVE VEHICLE
DESIGNS
1. PROJECT DEFINITION
a) Background
This candidate project was proposed by the Australian Trucking Association (ATA).
The Performance-Based Standards (PBS) scheme offers the potential to achieve higher
productivity and safety through innovative truck and bus design. PBS vehicles are tested
against stringent safety and infrastructure standards. From January 2013, the PBS scheme
moved to a national vehicle assessment and access decisions system administered by the
National Heavy Vehicle Regulator (NHVR).
b) What is the problem that need to be addressed
The administrative cost of obtaining PBS design and access approvals is too high and the
government should develop a national ‘standard vehicle’ designs to lower these costs and
make more productive vehicles available.
c) Project objectives
The objective of this project proposal is to facilitate the mainstreaming of innovative vehicle
designs and reduce costs for industry.
d) Desired outcomes and what will success look like
An analysis of options and a recommendation of whether the project should be undertaken, a
proposed approach, and the benefits, costs and risks of the proposed approach for
consideration by the Transport and Infrastructure Council (the Council).
e) Project scope and exclusions
Inclusions:

Consultation to clarify problem definition and proposed solutions

Assess range of potential solutions

Make recommendations to TISOC and the Council.
Exclusions:

Development and testing of national standard vehicle design blue-prints.
f) Constraints and assumptions
The efficient movement of people and goods is integral to lifting productivity and supporting
the growth of the whole economy.
g) Key stakeholders




Heavy Vehicle Industry – Associations (e.g. ATA, VTA) and operators
Vehicle manufacturers and vehicle design innovators, Truck Industry Council
Jurisdictions, NHVR and Road Managers
Technical advisors – Austroads, ARRB
h) Interfaces and related projects
This project proposal interfaces with the administration of the PBS scheme by the NHVR.
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This project proposal is also part of a broader program of reforms which focus on improving
freight productivity (being considered as part of the NTC work program).
i) Risks and opportunities
Risks:

Project could undermine the PBS scheme

Project could slow industry-led innovation
Opportunities:

Facilitate the design and adoption of more productive and safer vehicles to help meet
the growing freight task

Project could be co-delivered with industry, in terms of funding, management, and
design

For national expansion of examples that demonstrate that innovation can be achieved
under the current system (e.g. VTA negotiations with VicRoads to run ‘super Bdoubles’ approved to carry two 40 ft. containers under prescribed conditions).
2. PROJECT APPROACH
The final project approach will be co-designed with industry associations, jurisdictions and
the NHVR.
The first phase of this project is to investigate whether the current national regulatory system
(including the PBS scheme) offers sufficient means for industry to have innovative vehicle
designs assessed and permitted on appropriate routes, and if there are any barriers to this.
This phase should also investigate approaches used in different jurisdictions and whether
these could be applied nationally.
Subsequent phases could:

consider pathways for introducing ‘proven’ PBS vehicles into the regulations, or
allowing them to operate under a class 3 notice

investigate which organisations(s, if any) are best placed to develop innovative
‘standard’ vehicle designs on behalf of the heavy vehicle industry and advise TISOC
and the Council on the outcomes.
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PROJECT BRIEF: INCREASING ALLOWED VOLUME WHERE MASS IS NOT
THE CONSTRAINT
1. PROJECT DEFINITION
a) Background
This candidate project was separately proposed by the Australian Trucking Association and
Transport for New South Wales.
A number of previous national freight productivity reforms have focused on increasing
vehicle mass. However, between 45 and 80 per cent of heavy vehicles are constrained by
volume rather than mass. Therefore, there may be the potential to improve the productivity of
these volume-constrained vehicles.
b) What is the nature and size of the problem being addressed
The Australian freight task is growing. Without any further productivity improvements, more
trucks will be needed to meet this freight task with flow on effects to road safety, emissions,
congestion and infrastructure wear.
c) What will success look like
Evidence based options, supported by Transport and Infrastructure Senior Officials
Committee (TISOC) members, are presented to the Transport and Infrastructure Council
(TIC) for consideration.
d) Project objectives
The first stage of this project is identifying the potential to improve productivity of volumeconstrained vehicles and analysing options to develop recommendations for consideration by
TISOC and TIC.
e) Desired outcomes
Improved productivity through improved access for higher volumetric productivity trucks
where mass is not a constraint.
f) Project scope and exclusions
The project scope includes:




Collating available information about the current freight task which is constrained by
volume.
Reviewing ways to address volumetric issues (including use of the performance based
standards process).
Collating examples of how state and territories have allowed higher volumetric
productivity vehicles to access the roads
Developing evidence-based options and making a recommendation to TIC.
The project scope excludes:



Specific design work for trucks that can carry more volume,
A demonstration or pilot project,
Implementation of options (however an implementation plan would accompany the
recommendations to TIC).
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g) Assumptions and constraints
This proposal assumes that governments wish to pursue initiatives which increase freight
productivity.
h) Interfaces and related projects
This project proposal is part of a broader program of reforms which focus on improving
freight productivity (being considered as part of the NTC work program).
i) Key stakeholders
 Freight industry, including suppliers and receivers, etc.
 Governments including road authorities, local councils and the National Heavy
Vehicle Regulator
j) Opportunities and risks
The opportunities include:

gaining a better understanding of what portion of the freight task is actually volumeconstrained to provide the evidence to support subsequent options and
recommendations, and
 broader support in government and industry for addressing volume-constrained
vehicles.
The risks include:



Insufficient relevant data, or prohibitively high costs for gathering the data, necessary
to develop a rigorous evidence-based to support the options analysis and
recommendations,
The scope of the project is underestimated, leading to greater time, resource and
funding costs, and
Reaching consensus on the recommendations.
2. Project approach
A key task is to understand the extent to which productivity is inhibited by volume
constraints. This would involve examining available data to gain a better understanding of:


the extent to which vehicle dimensions constrain productivity
what type of vehicle and operations face volume constraints (as opposed to mass).
Another task is to engage industry and governments to investigate the options available to
improve the productivity of volume-constrained loads, including:



utilising the current permits and access approvals systems
examining current examples of higher volume configurations used in different
jurisdictions, that may be more broadly applied under and national vehicle
configuration, and
examining whether the current PBS processes and access arrangements are sufficient
to allow improved volumes.
A discussion paper will provide options to improve the productivity of volumeconstrained vehicles. Stakeholder consultation will be used to refine the final report.
The report will canvass options and make a recommendation for consideration by
TISOC and TIC on the next steps.
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PROJECT BRIEF: ALLOWANCES FOR HEAVIER AND LONGER TRAINS
1. PROJECT DEFINITION
a) Background
Stakeholders have requested that the NTC examine opportunities to improve rail productivity,
including heavier and longer trains. The Australasian Railway Association (ARA) and
Australian Rail Track Corporation (ARTC) have clarified with the NTC that there are no
easily identifiable regulatory or operational barriers to running longer and/or heavier trains.
b) What is the nature and size of the problem being addressed
The primary barriers to increased rail productivity appear to primarily relate to infrastructure
capacity and funding such as: the need for longer passing loops to permit longer trains, and
bridge or culvert weight restrictions.
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PROJECT BRIEF: APPLICATION OF BRIDGE ASSESSMENT PROCESSES
1. PROJECT DEFINITION
a) Background
This candidate project was proposed by the Australian Trucking Association (ATA) and
received broad industry support at a NTC planning workshop in November 2013.
A recent Austroads project (FS1580 Stage 1) indicated that the use of inconsistent bridge
capacity assessment criteria and methods is widespread across Australia. The report
concluded that:


states and territories are applying different factors and parameters while assessing
bridge capacity,
road authorities do not always assess bridge capacity in the manner stipulated in the
relevant Australian Standard.
Austroads report that the completion of the review of the Australian Standard AS5100.7
(TP1681) has enabled the development and agreement by all road authorities to live load
factors to be used in assessing brides. Consequently, an additional proposed Austroads
project to develop a nationally agreed position on relevant engineering factors associated with
bridge capacity assessment is now redundant.
The ATA also argued that the ‘bridge formula’ is too conservative, that is, it is overly
weighted towards asset preservation, rather than asset utilisation.
b) What is the problem that needs to be addressed
The inconsistent application of the Australian bridge formula between states reduces the
overall productive capacity of the road network. In certain locations the capacity of bridge
assets has been reduced below that expected, by changes in the application in the bridge
formula. This has a broader network effect as bridge access is often critical to avoiding longer
detours.
There is also an inherent conflict between the objectives of preserving road assets and
maximising the productive use of road assets.
c) Project objectives
To determine the nature and extent of work necessary to reach and consistently implement an
agreed national bridge assessment approach that effectively balances asset preservation and
utilisation objectives.
d) Desired outcomes and what will success look like
This project will be successful when a nationally consistent bridge formula is developed,
agreed, implemented and consistently applied in a manner which increases heavy vehicle
industry certainty about access decisions, whilst maximising the productive and sustainable
use of the bridge assets.
e) Project scope and exclusions
The project scope will be refined upon gaining further certainty about the outcomes of
Austroads’ recently completed project and upon consultation with stakeholders.
Inclusions:
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
consultation with industry, road managers and the regulator

representation on the Austroads project committee to ensure that industry and the
regulator have sufficient access to the project and are able to provide input (if
additional project proceeds)

analyses of the application of the bridge assessment guidelines and PBS guidelines by
jurisdictions, local governments and the regulator (depending on approach taken)

investigation of issues and how to improve national consistency, including possible
regulatory and policy frameworks that facilitate speedy and consistent implementation
of national bridge assessment processes
Exclusions:
 technical (engineering and other) work contributing to the development of national
bridge assessment processes.
f) Constraints and assumptions
The constraints for this project are uncertainties surrounding:

whether the completed Austroads project adequately addresses the inconsistent
implementation of the bridge assessment guidelines

whether the additional proposed Austroads project will commence, its scope,
duration and outcomes, and

whether an agreed national approach can be achieved that effectively balances cost
minimisation, community safety and utilisation objectives.
g) Key stakeholders
Jurisdictions, represented in the Austroads Freight and Asset (Bridge Group) Taskforces;
local governments; NHVR; logistics firms, road freight operators and representative
associations, the Commonwealth (responsible for the Australian Standards).
h) Interfaces and related projects
This project is part of a broader freight productivity program of work being considered by the
NTC. Within this program there are a number of heavy vehicle access-focussed projects.
i) Risks and opportunities
This project is technical in nature and represents inherent stakeholder conflicts.
Regulatory work may follow or be undertaken alongside the technical research that Austroads
will supervise, but as this technical product will not be delivered before mid-2016, this should
be regarded as a medium-term project.
2. PROJECT APPROACH
The NTC’s approach is dependent on the outcomes of the recently completed Austroads
project, whether the additional proposed Austroads project proceeds, how it is scoped and
how successful it is in achieving its objectives.
If the additional Austroads project proceeds, the NTC’s role could be focussed around
ensuring that the project effectively balances the needs of stakeholders not represented on the
Austroads taskforce. Potentially, this may include:
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
facilitating stakeholder engagement to ensure that industry, road managers,
jurisdictions and the regulator have the opportunity to fully contribute

representation on the Austroads project committee

support for the implementation of the Austroads project outcomes (which may require
regulatory changes).
If the Austroads project does not proceed, the NTC’s role would be to investigate the nature
and size of the problem, identify options to resolve issues and make recommendations to
ministers. The project would need to be co-designed, agreed and implemented with road
managers (jurisdictions, including Austroads, and local government), heavy vehicle operators
and representative associations, the national heavy vehicle regulator and the Commonwealth
Department (responsible for the Australian Standard). This approach would likely include a
discussion paper and stakeholder engagement ahead of any recommendations to ministers.
Appendix: Further background on the Austroads Freight and Asset (Bridge Group)
Taskforce
Austroads expects to commence work developing a nationally agreed position on engineering
factors with bridge capacity assessment in January 2015. This project will run until the end of
June 2016. This work is being supported by national Bridge Assessment Guidelines and a
process manual.
The Austroads Freight and Asset (Bridge Group) Taskforce has set three goals for
improvement in bridge capacity assessment:



Timeliness,
Transparency, and
Consistency.
The challenge for engineering professionals, road agencies and heavy vehicle regulators is to
ensure that consistent assessment methods are:





agreed,
fit-for-purpose,
consistently implemented,
implemented with all possible speed, and
capable of maximising the productive and sustainable life of the road asset.
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PROJECT BRIEF: Risk-based Approach for Heavy Vehicle Access to Broader
Networks
1. PROJECT DEFINITION
a) Background
This candidate project arose from the challenges experienced in articulating the benefits and
gaining support from government, industry and community stakeholders for a range of
productivity reform proposals.
Transport policy makers, commentators and industry have for some time recognised that the
lack of consistency and recognition across state boundaries of rules governing access beyond
general and concessional mass limits by heavy vehicles to road infrastructure is problematic.
This inconsistency has constrained the extent to which greater productivity could have been
realised by more extensive use of these vehicles.
b) What is the nature and size of the problem being addressed
The problem of improving productive heavy vehicle access to certain types of infrastructure
according to common standards is necessitated by several issues. Notably:

Australia’s growing freight task

Limited funds for upgrading infrastructure.
One way to address these problems is to make greater use of more productive vehicles, in
particular by:
a) Harmonising rules and processes across states and territories
b) Debating the appropriate use of infrastructure (i.e. preserve vs factoring in wear
and tear to serve other objectives).
c) What will success look like
More consistent and transparent, published requirements for high productivity vehicular
access to specific road networks.
d) Project objectives
To achieve greater harmonisation and standardisation in the rules and processes used to
regulate the use of productive heavy vehicles.
e) Desired outcomes
More productive use of the road network to meet Australia’s growing freight task.
f) Project scope
a. Inclusions: legislation, regulations and processes governing the use of
productive heavy vehicles where access is not granted ‘as of right’.
b. Exclusions: road and bridge funding; broader social and related policy
discussion (except in general terms).
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g) Constraints and assumptions
This project will be constrained by the difficulty of achieving agreement between diverse
state, territory and local government road managers and industry bodies and heavy vehicle
operators.
h) Interfaces and related projects
There are numerous interfaces between this project and others in the NTC’s work program,
including:
 Application of bridge assessment processes (new project)
 Heavy vehicle charges review and determination (including annual adjustments)
 Identifying opportunities to improve heavy vehicle speed management
 Voluntary use of heavy vehicle telematics for regulatory purposes.
i) Key stakeholders



Jurisdiction, including state, territory and local government road managers
transport and logistics bodies
heavy vehicle operators.
Separate and collective consultation sessions will be required with stakeholders before the
NTC can issue necessary policy papers and recommendations for ministers.
j) Risks and opportunities
Risks include:

Duplicating work the NHVR is undertaking to improve consistency in access rules
Opportunities include:

Achieving government and industry agreement on necessary and improved access
management arrangements.
2. PROJECT APPROACH
Stage 1 of the project may comprise a discussion paper, outlining the relevant issues and
suggesting policy options and regulatory approaches.
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PROJECT BRIEF: CONSISTENT STANDARDS AND OPERATING
ARRANGEMENTS FOR TRI-AXLE DOLLIES
1. PROJECT DEFINITION
a) Background
In May 2014, the Transport and Infrastructure Council agreed the NTC should prepare a
business case for ‘consistent standards and operating arrangements for tri-axle dollies.’ The
work was previously being led by the National Heavy Vehicle Regulator.
Industry has raised concerns that jurisdictions have applied different operating requirements
and standards for tri-axle dollies used by heavy vehicles. This has resulted in incompatibility
across borders with tri-axle dollies that are permissible in most states, requiring approval as
PBS vehicles in others. The impacts include constraining the productivity and safety benefits
offered by tri-axle dollies and limiting the development of local businesses producing them.
b) What is the nature and size of the problem being addressed
A tri-axle dolly is a type of three-axle trailer used by heavy vehicles to tow other vehicles.
The NVHL defines a converter dolly as a pig trailer with a fifth wheel coupling designed to
convert a semitrailer into a dog trailer.
The tri-axle converter dolly is either:

a fixed draw bar design with a conventional fifth wheel coupling; or

a pivoted draw bar design with a Ball Race turntable; or

a similar design that ensures converter dolly frame stability.
Despite national agreement to a design standard for tri-axle dollies, application of this design
standard has not been universal, which (reportedly) excludes the design used in other most
states from operating legally within one jurisdiction.
Project objectives
Agreement and implementation of consistent specifications and operating arrangements for
tri-axle dollies nationally.
c) Desired outcomes and what will success look like
Achieving national agreement and implementation of a design standard for tri-axle dollies
will allow high productivity vehicles utilising such trailers to move seamlessly across
interstate borders. Removing barriers that may be preventing the development or growth of a
local market in producing, maintaining and optimising tri-axle dollies.
d) Project scope and exclusions
a. Inclusions: examining the technical differences between the design standards
and identifying opportunities and options to harmonise or mutually recognise
the design standards, development of an implementation or transition path
b. Exclusions: road and bridge funding, retrofitting tri-axle dollies in operation to
meet changed ADRs and Vehicle Safety Bulletins.
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e) Constraints and assumptions
This project will be constrained by the difficulty of achieving agreement between all state and
territory road agencies, and industry bodies and heavy vehicle operators. Historical
arrangements that are currently in place will need to be accounted for.
f) Key stakeholders

Jurisdictions and state and territory road agencies

NHVR

Austroads

transport and logistics bodies

vehicle and trailer manufacturers

heavy vehicle operators.
g) Interfaces and related projects
There are several interfaces between this project and others in the NTC’s work program,
including:

Application of bridge assessment processes (new candidate project)

Increasing allowed volume where mass is not the constraint (new candidate project)

NHVR projects to “increase access to road network by vehicle type” and “develop
systems and resources to guide, support, and improve the expertise and effectiveness
of decision-making on heavy vehicle access to the road network.”
A broader examination of heavy vehicle dolly safety and design features (particularly relating
to dollies tilting forward under certain circumstances) has also been raised as a question
which might impact this project.
h) Risks and opportunities
Risks include:

Scope creep and unrealistic expectations of what the NTC can achieve

Implications for costly or time-consuming processes associated with new testing for
different specifications and potentially changing Australian Design Rules (ADRs) and
Australian Vehicle Standard Regulations (AVSRs)
Opportunities include:

Achieving government and industry agreement consistent standards.
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