Lorry Routes & Bans

This measure was updated by INSTITUTE FOR TRANSPORT STUDIES (ITS) in 2014 under the CH4LLENGE project, financed by the European Commission.

Lorries can cause environmental damage and community severance if allowed to traverse residential areas.  They can cause structural damage if allowed on unsuitable roads. Lorry routes are used to achieve Positive Routeing by specifying the routes which lorries can take.  Lorry bans achieve Negative Routeing by specifying areas through which they may not pass. Both routes and bans are typically applied to certain categories of lorry, and most bans will have exemptions for access.

Lorry routes are harder to impose than bans, since they leave the lorry driver less flexibility in choice of route and means of access.  Lorry bans can have beneficial impacts on liveability, environment and safety in the areas protected.  However, this can be offset by adviser impacts elsewhere, unless there are suitable alternative routes.  While they may reduce congestion by transferring lorries to more suitable routes, they will typically add to the operating costs of the lorry fleet, and may as a result give rise to inefficiencies, which need to be considered alongside the environmental and safety benefits.  

Terminology

An efficient system of road freight transport is very important for any economy. All sectors of business rely on a complex flow of raw materials, components and finished goods. Society, however, perceives lorries as a nuisance which can have several detrimental effects, such as noise, environmental intrusion and damage to infrastructure. This had led to the development of numerous lorry management techniques, aimed at reducing the nuisance.

A Lorry, or ‘heavy commercial vehicle’ (HGV), is defined as any goods vehicle with an operating weight, (i.e. gross permitted weight) exceeding 7.5 tonnes.

Many of the measures which can reduce the environmental impact of lorries require legal procedures to be followed for their implementation. Section 2 of the UK Traffic Regulation Act 1984, is concerned with amenity control on goods vehicles, which local authorities may introduce, which include:

• Control of ‘through’ routes used by heavy goods commercial vehicles;
• Prohibitions or restrictions on the use of heavy commercial vehicles in such roads or zones “as may be considered expedient for preserving or improving the amenities of their area or of some part or parts of their area” (Traffic Regulation Act 1984).

Types of Lorry Routes and Bans

Lorry Routes

Control of through routes relates to Positive Routeing, i.e. specifying mandatory through routes for lorries. However, experience has shown that mandatory routes are not very practical. Drivers’ understanding and compliance is likely to be very poor, and signing of the routes can be very complex. Therefore many authorities have changed their approach to Negative Routeing, i.e. specifying roads and zones which are prohibited to lorries but subject to exemptions, such as unloading. Advisory routeing for lorries is now widely used.

The proportion of lorries in a large conurbation on a through trip is generally small. Controls used in smaller conurbations are not always suitable for larger conurbations in reducing overall environmental disturbance, since lorries in larger conurbations will re-route into adjoining areas. A total ban of vehicles passing through the conurbation would also affect a small proportion of the flows.

Successful routeing controls depend upon the existence of a suitable network of purpose-designed roads which are able to accommodate increased lorry flows (the lorries displaced from adjoining areas). Previous experience has shown that concentrating lorry flows on to a small number of roads, some of which may be environmentally sensitive, may not be acceptable. Therefore the roads identified for an urban lorry network are likely to be busy roads with poor existing environmental conditions.

Lorry management does not only involve regulating, restricting or banning lorries. It can also be used to assist lorries to become more efficient, for example by improving access to, and circulation within urban areas. The more efficiently lorries and industry operate, the greater the likelihood thatfewer lorries will be needed. However, the inefficiency and unreliability of road networks, combined with over-restrictive control measures, can increase lorry traffic. Positive lorry policy is likely to yield environmental and economic benefits.

A number of authorities have introduced local advisory routeing schemes, which identify preferred routes for lorries entering town centres, industrial estates, retail parks and other areas of significant lorry build-up. The area is usually divided into zones; with the preferred routes serving each zone codified by a letter, number, symbol or colour, and hence signed appropriately. To be a success, such schemes need good publicity and coverage, (i.e. information displayed in the form of maps and leaflets), and co-operation of local firms (i.e. advising their suppliers).

Lorry Bans

Lorry bans can be enforced in several ways, including physical barriers. Although physical barriers are non-regulatory, i.e. self enforcing, they do require a Traffic Regulation Order (TRO) if placed on the highway, as they will prevent the passage of vehicles otherwise lawfully allowed.

The simplest physical measure is a height-limiting barrier, which is usually used to give advance warning ahead of physical restrictions, but can be useful for preventing access for oversized vehicles. Physical width restrictions may be narrowed to less than 2.5m at selected points to prevent to the passage of large vehicles. Width-restrictions can effectively create cul-de-sacs without turning space so large vehicles become trapped and may have to reverse for long distances. It is essential that they are located intelligently and signed well in advance.

Using the UK as an example, the Road Traffic Regulation Act 1984 gave local authorities wide-ranging powers to local authorities to regulate traffic. Many local authorities have taken powers under the Act to protect sensitive parts of the highway structure from the effects of heavy lorries, for example, prohibiting them from using weak or low bridges, using both regulatory and advance warning signs.

Why introduce lorry routes and bans?

The popularity of Lorries for the movement of goods is unsurprising given the efficiency and reliability of the service, combined with the relatively short distance of the average freight trip. The development of JIT (just-in-time) delivery systems, with growth in out-of-town distribution centres, has eliminated many town centre lorry trips by individual suppliers. However, this development has led to the growth in small and medium sized vehicles

Although the total number of heavy Lorries registered has been declining, the average weight and size has increased, which gives rise to complaints made about noise and exhaust emissions. Pedestrians, cyclists and car drivers feel their safety is compromised, especially on unsuitable roads, usually because Lorries have no alternative. In a survey:

• 33% hearing lorries were bothered by them
• Heavy Lorries are 13 times more noisy than cars in congestion
• Vibration correlated best with lorry flows
• 37% consider lorries produce worse fumes

Lorry routes and bans may help combat such problems and help prevent damage to existing infrastructure. Each year there are around 1000 bridge strikes in the UK by over height vehicles and loads, some of which cause great damage to bridge structures, which result in serious hazards to rail and road and impose heavy costs of delay and congestion.

Heavy lorries are the main cause of damage to road surfaces and the structure of roads. They may also contribute to damage to underground services and adjacent buildings.

Short and long run demand responses

Lorry routes and bans are likely to increase the demand for car use in some cases. This is due to reduced congestion from certain routes and the motorist experiencing a more efficient transport system, thus making driving a more attractive option. However, where Lorries are re-routed, car use is likely to fall as these routes become more congested. Along these routes, demand for public transport may increase.

Expected impact on key policy objectives

Short, medium and long term responses

Supply impacts

Lorry Routes are likely to increase the supply of road space available to lorry drivers, especially if they have specially designated lorry lanes. If Lorry bans are in effect, total supply of road space to lorries is inevitably going to fall.

Financing requirements

Lorry routes and bans are not likely to incur considerable cost in their implementation. The major cost associated is that of road markings, signage and enforcement.

Expected impact on key policy objectives

The removal of Lorries from certain routes is likely to contribute to economic efficiency, environment in those areas and increased safety along those routes. Less congestion will lead to increased trade in the area as it is more accessible. Fewer lorries mean the environment will improve in that particular area, in terms of air quality and noise. However, increased journey times and distance mayl increase pollution overall. The re-routing of Lorries is likely to lead to decreased safety along those routes.

Expected impact on problems

Lorry routes and bans have considerable potential to reduce problems associated with congestion, environment and safety in an area. However where Lorries are re-routed may lead to an increase of problems, such as congestion and pollution, in that area. Lorry routes and bans can tend to merely move the problems to another area rather than the eradicate them.

Expected winners and losers

Barriers to implementation

Case Study 1: Windsor Area, UK
Case Study 2: Tokyo, Japan

Case Study 1: Windsor Area, UK

Context

In 1978 the County of Berkshire introduced lorry controls in an area of Eastern Berkshire which includes the town of Windsor. The purpose of the controls was to prevent through heavy goods vehicles which do not have to make a stop from passing through the Windsor area. The controls consisted of restrictions or prohibitions on the use of 50m sections of road by goods vehicles with a weight over 5 tons.

The prohibited sections were located on roads that cross a cordon, to the east, south and west of Windsor. The cordon was about 9km from Windsor at the furthest point.

These controls required prohibited vehicles to take alternative routes around the cordon. If vehicles were subject to the controls but required access to the protected areas they had to make detours and enter only by the permitted routes from the north.

Some vehicles were exempt from the controls, including tankers for petrol, fuel oil or milk, breakdown vehicles, agricultural tractors and trailers, animal transporters and ready-mixed concrete vehicles. Berkshire council granted exemption permits for individual vehicles of other types which were based or had business in the Windsor area.

By mid 1978 approximately 70-85% of vehicles affected by the controls were complying with them on the more busy routes. This was achieved despite the fact there was very little police enforcement activity at the time.

Impacts on demand

Demand for road space within the cordon inevitably fell, although overall demand was likely to stay the same as vehicles re-located to other areas. On the roads assessed 1400 homes experienced reductions in lorry nuisance, but an almost equal number experienced increases. This suggests that lorries are changing their routes, therefore increasing demand for road space on the outskirts of Windsor. As congestion was less in Windsor, this may have increased car usage, as users were able to achieve shorter journey times. However, surveys have shown general road traffic decreased by 2.9%.

Impacts on supply

The measures were unlikely to lead to a change in the supply of road space, but rather a change in how it was used.

Contribution to objectives

Case Study 2: Tokyo, Japan

Context

In Tokyo, there is a zonal ban on access by heavy goods vehicles. The ban is in operation in most of Tokyo’s inner districts of the city. It is effective on one night of the week, between 2200 hours on a Saturday night and 0700 hours on a Sunday morning. The main purpose of this ban is to reduce the disturbance felt by local residents in the Tokyo suburbs. The zone from which the ban is controlled is bounded by the ring road which encircles the city. The radius of this road is between 4 and 6 miles from the city centre.

The ban covers vehicles exceeding 8 metres in length or 5 tonnes capacity. These vehicles are prohibited from moving in the zone for the hours in which the ban is effective. However, movements are permitted across zones on nine metropolitan highways, which are also the main radial routes. Emergency vehicles are granted permits, and special dispensation for urgent consignments is generally granted.

The ban in Tokyo is perceived to be relatively successful, although it has its limitations. There is no plan to extend the ban, in terms of either time covered or area covered, as it is feared it could have a detrimental effect on the local economy. The ban is possible because the majority of fresh food markets do not open on a Sunday.

Impacts on demand

Demand for road space within the area covered by the ban will inevitably fall, as lorries have to change their routes. Movements into the centre of Tokyo will have a dramatic change in the time where the ban is effective. A survey carried out on the first night of the ban showed that at one busy junction, movements fell from 792 a night to 146 per night.

Impacts on supply

Again, the measures are unlikely to lead to a change in the supply of road space, but rather a change in how it is used. The measure is designed to reduce congestion, and as building more roads can actually increase congestion, this seems unlikely.

Contribution to objectives

Contribution to objectives and alleviation of key problems

Contribution to problems

Appropriate contexts

There are no such areas where lorry routes and bans are inappropriate, but they are most suitable for areas where there is congestion relating to high Lorry Activity. They may be introduced to improve safety, cut congestion, and reduce pollution in the local environment. Hence, such areas are likely to be highly dense industrial areas.

Adverse side-effects

As Lorries re-route, journey times are likely to rise for such vehicles. As a result, total pollution from Lorries is likely to rise, particularly in surrounding areas not affected by the restrictions. As a result, accident rates are also likely to rise in these areas as the volume of traffic is increased.

Operating costs of haulage companies will inevitably rise, which may be passed on to the consumer, who will experience higher prices as a result.

Coming soon.