Freight Transport and Logistics Masterplan - BMVI
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Freight Transport and Logistics Masterplan
Freight Transport and Logistics
Masterplan
Con t en t s Con t en t s
Contents
I. Introduction 7 C Shifting more traffic to the railways and inland waterways 47
C1 Review the regulatory framework for freight transport in intermodal competition 48
1. Freight transport and logistics – the key to a sustainable transport policy 7
C2 Increase funding for combined transport 49
2. The importance of freight transport and logistics 8 C3 Evolve handling technologies and organization in combined transport 50
C4 Internalize external costs 51
a) Mobility as the basis of personal freedom and social inclusion 8
b) Mobility as a driver of economic growth and job creation 8 D Upgrading more transport arteries and hubs 53
3. Freight transport and logistics at the centre of social change – new challenges 11 D 1 Segregate freight and passenger traffic 54
for transport policy D 2 Review the requirement plans 56
D 3 Press ahead with the implementation of PPP solutions for the speedy and efficient 57
a) Traffic growth as a result of globalization and an increasing division of labour 11
delivery of motorway widening and motorway maintenance projects
b) Climate change and environmental protection 12
c) Demographic change 12 E Environmentally friendly, climate-friendly, quiet and safe transport 59
d) Changed conditions of work and skills requirements 13
E1 Develop a strategy to vary toll rates according to the route driven and the time of day 60
e) More exacting safety and security requirements 14
E2 Mitigate noise on the railways 61
4. Sustainability as a benchmark of transport policy 15 E3 Establish a financial assistance programme to encourage the use of modern technologies 62
to reduce the noise caused by rolling stock
5. Transport policy in social dialogue 16
E4 Optimize processes in the logistics chain taking greater account of environmental 63
6. Objectives of the Masterplan 18 concerns
A Making optimum use of transport infrastructure – shaping transport 18 E5 Further tighten environmental and safety standards (emissions reduction, noise 64
to make it more efficient mitigation, safety technology)
B Avoiding unnecessary journeys – ensuring mobility 19 F Good working conditions and good training in the freight transport industry 65
C Shifting more traffic to the railways and inland waterways 20
F1 Step up the enforcement of social legislation in the road haulage sector to improve 66
D Upgrading more transport arteries and hubs 21
road safety
E Environmentally friendly and climate-friendly transport 23
F2 Launch a basic and further training initiative 67
F Good working conditions and good training in the freight transport industry 24
F3 Hold regular summits on the subject of work and training in the freight transport 69
7. Implementation 26 and logistics sector
F4 Launch a lighthouse project to improve the international profile of logistics courses 70
II. Measures 27 in higher education
F5 Monitor the working conditions in the freight transport and logistics sector as part 71
A Making optimum use of transport infrastructure – shaping transport to make 27 of the market observation activities of the Federal Office for Goods Transport
it more efficient F6 Improve seafarers‘ working and living conditions 72
A 1 Develop and deploy more traffic management systems on busy sections of 28 G Further measures to make Germany even more attractive as a centre for logistics 73
federal motorway
G 1 Establish a freight transport and logistics network 74
A 2 Standardize and link up the traffic management systems on federal 29
G 2 Implement a marketing strategy to promote Germany as a centre for logistics 75
motorways nationwide
G 3 Security strategy for the freight transport and logistics industry 76
A 3 Speed up implementation of the “Development programme to increase the 30
number of parking areas at service stations and rest areas on federal motorways”
Glossary of abbreviations 77
A 4 Continue and intensify the measures to tackle congestion by optimizing 31
roadworks management
A 5 Provide traffic information and communications services for heavy goods vehicles 32
on the motorway network by using toll information (value-added services)
A 6 Develop a strategy to speed up introduction of the European Train Control System (ETCS) 33
on freight corridors in Germany
A 7 Develop a national ports strategy 34
A 8 Develop a national airports strategy 36
A 9 Take concerted action with shippers and the freight transport sector to stagger 38
freight traffic (extending ramp times)
A 10 Create a focal point – the Federal Government Commissioner for Freight 39
Transport and Logistics
B Avoiding unnecessary journeys – ensuring mobility 41
B1 Urban Logistics Initiative 42
B2 Step up investment in innovative and capacity-enhancing technologies 43
B3 Optimize transit traffic 44
B4 Short sea shipping 45
In t roduc t ion
I. Introduction
1. Freight transport and logistics – the key to a sustainable transport policy
The future shape of freight transport will also and the environment. That is why the Freight
decide what the transport system as a whole Transport and Logistics Masterplan is a docu-
in Germany will look like. At the same time, ment that sets the direction for transport po-
it will also be crucial in deciding whether, in licy as a whole. Because passenger and freight
twenty years’ time, we have a transport system transport are closely interlinked. People and
that ensures mobility, prosperity and jobs whi- goods use largely the same infrastructure.
le reflecting environmental concerns. And the If goods get stuck in a traffic jam, people get
future shape of freight transport will also de- held up as well. Freight transport and logistics
cide whether transport contributes to a better thus play a key role in our efforts to shape our
quality of life or becomes a burden on humans overall transport system.
I n t roduc t ion In t roduc t ion
. The importance of freight transport and logistics punctual transport operations. This becomes around three percent. Exports are thus the
apparent in particular when the freight trans- crucial growth engine of the German eco-
a) Mobility as the basis of personal same time, mobility facilitates social inclusion, port and supply chain fails to operate smooth- nomy. The import of intermediate products
freedom and social inclusion because it is absolutely essential if people are ly. The result is not infrequently a loss of – likewise on the rise – also makes a contri-
to participate fully in working life, in educa- production within a very short period of time, bution to this. Germany is a high-technology
Freight transport and passenger transport tion and culture, and in social life as a whole. and people become aware of something that location. As such, it is becoming increasingly
serve different expectations that citizens have Conversely, this also applies to the transport has been largely forgotten, given the fact that dependent, within the framework of a glo-
of their transport system. But it is not only of goods. Freight transport and logistics move the transport and logistics system in Germany bal division of labour, on imported inputs,
passenger transport that is about people. The goods to where people need them. In doing so, usually operates so well. Namely that almost whose processing and final assembly in
same applies to freight transport and logistics: they create the material conditions for people every job in trade and industry depends di- Germany creates jobs and safeguards the
be it as someone who dispatches or orders con- to develop and for social exchange, which rectly or indirectly on a properly functioning competitiveness of German companies.
signments, be it as an operator or an employee manifests itself in the trade in goods and pro- logistics and transport system.
in the supply chain, be it as a consumer of the ducts. And there is another social element in- However, this dynamism would not be
delivered products. volved. Freight transport and logistics services One of the main reasons why transport possible without a properly functioning
are provided by people for people. That is why is of such tremendous importance is that freight transport and logistics system. This
the present Masterplan addresses not only the the German economy is dependent on ex- transport system represents a significant
transport system as such, but also the compa- ports. The contribution made by exports to locational advantage in global competition.
nies that operate in the freight transport and German gross domestic product rose shar- It makes Germany a more attractive place for
logistics sector and their employees, without ply from 16 % to over 23 % between 1995 and foreign investors and helps to create new jobs
whose work freight transport and logistics 2006. This trend will continue in the future, in trade and industry. This means that freight
would not function in the first place. with a forecast annual growth in exports of transport and logistics are a major prerequi-
b) Mobility as a driver of economic
growth and job creation
Mobility – be it the mobility of people
themselves or the transport of goods – is a
major basis of prosperity and employment.
Because these are based on production cha-
racterized by the division of labour and on
the exchange of products and services. For a
Freight transport can only be viewed as modern industrial and service economy based
part of mobility as a whole. The transport and on the division of labour, transport – which, as
supply of goods is an essential basis of our commercial transport, comprises both freight
quality of life and self-development, while transport and passenger transport services
forming a major prerequisite of social interac- – is thus an indispensable prerequisite.
tion. Mobility educates us by providing us with
freedom of movement, a basic condition of our Freight transport and logistics are the
personal freedom. Without mobility, neither linchpin of our economy, which is based on
personal self-development nor direct commu- a division of labour. Companies engaged in
nication with other people is possible. At the trade and industry depend on reliable and
10 I n t roduc t ion In t roduc t ion 11
site for ensuring the competitiveness of the transport system as a whole more efficient for . Freight transport and logistics at the centre of social
German economy on a long-term basis. freight transport and to optimize utilization of change – new challenges for transport policy
the transport infrastructure.”
As a result of this economic importance, Germany has one of the most modern responding with this Masterplan is the drastic
the logistics sector itself has grown steadily in On this basis, the Federal Minister of transport infrastructures in the world, with a rise in the level of freight traffic that is likely
recent years: Transport, Building and Urban Affairs seized dense and efficient network of roads, railways, as a result of globalization and increasing
the initiative for the development of a Freight waterways, ports and airports. The logistics division of labour in the economy. Increasing
• The logistics sector, which today directly Transport and Logistics Masterplan covering systems have been developed to a very high specialization and division of labour will lead
employs over 2.6 million people, is one of a wide cross-section of society. The fact that standard. The Federal Government’s objec- to a further rise in international trade. The
the largest and most dynamically develo- this initiative has attracted great participation tive is to lastingly secure the leading position result will be that more and more goods are
ping labour markets in Germany. from industry, academia and non-governmen- that Germany enjoys in freight transport and transported over increasingly long distances.
tal organizations illustrates that the shaping logistics and in transport infrastructure. To This means that there is likely to be a sharp in-
• With an estimated turnover of around of our freight transport and logistics system achieve this goal, both the public and private crease in the demand for logistics and freight
836 billion euros (EU 27 plus Norway and is a key issue of sustainable societal moderni- sectors have to address the economic, social transport services.
Switzerland, 2006 figures), the logistics zation, and that people believe there is a great and ecological challenges.
industry occupies third position in the need for action in this sphere. If we do not react to this, the result will be
league table of major European economic that tonne-kilometres in Germany are likely
sectors, only just behind the construction Thanks to its technology-oriented to rise by 71 % between 2004 and 2025. In the
and food industries and way ahead of the measures, in particular, the Freight Transport road haulage sector, this rise will be higher
metalworking and automotive industries. and Logistics Masterplan makes a contributi- (79 %) and in long-distance road haulage it
on to the innovation policy objectives of the will be as high as 84 % . 2 Moreover, since this
• With a turnover of 189 billion euros and Federal Government’s high-tech strategy in rise will differ from one region to the next, it is
a 21 % share, Germany is by far the most the “vehicle and transport technology” field of likely that freight traffic levels will almost dou-
important European logistics market. 1 innovation. ble on some trunk roads. If this forecast rise
were to become reality, it would mean: where
Freight transport and logistics thus form today one lane of a motorway is used by heavy
an important – and often underestimated goods vehicles, in just under twenty years two
– basis of our prosperity. They are drivers of lanes would be necessary to cope with the
economic growth and employment. increased volume of freight traffic. In addition,
passenger traffic will also increase, although
The political parties that make up the at a much lower rate (19 %).
Federal Government have recognized this
importance. In the coalition agreement of It is obvious that such growth presents
11 November 2005, they agreed to continue to a) Traffic growth as a result of globalization transport policymakers with great challenges.
consolidate “Germany’s leading position as a and an increasing division of labour They have to ensure that economic growth
logistics hub”, to promote “an international- and jobs, on which we depend to secure our
ly competitive framework for Germany as a The first and, at the same time, key chal- prosperity, are not constricted by bottlenecks
logistics hub” and “in particular, to make the lenge to which the Federal Government is in the transport system. Inadequate transport
1 2
Data from Fraunhofer Institute for Integrated Circuits – Working Group for Technologies in the Logistics Services Industry (2005): Intraplan Consult GmbH and BVU Beratergruppe Verkehr + Umwelt GmbH (2007): Prognose der deutschlandweiten Verkehrsver-
Logistikstandort Deutschland; Fraunhofer Institute for Integrated Circuits – Working Group for Technologies in Logistics Ser- flechtungen 2025, R&D No 96.0857/2005, commissioned by the Federal Ministry of Transport, Building and Urban Affairs.
vices (2007): TOP 100 in European Transport and Logistics Services.
1 I n t roduc t ion In t roduc t ion 1
infrastructure would have an adverse impact decline from its present figure of 82.5 million and logistics industry with an opportunity
not only on the German economy but on our to around 74 million by 2050. 3 to develop new logistics products and tap
mobility as a whole. Because congestion af- However, because of the aforementioned into new markets. The rising proportion of
fects goods and people alike. This means that impacts of greater specialization and division elderly consumers calls for a rethink not only
increasing levels of freight traffic will aggra- of labour, this decline will not, in the medium in product development and marketing, but
vate the conflicts with passenger traffic. Thus, term, result in a drop in freight traffic levels. also in logistics services. This could result in a
it is not just a question of ensuring the proper However, demographic change does present widening of the range of logistics services, for
functioning of our freight transport system transport policymakers with significant instance by the establishment of special deli-
as a basis of competitiveness and economic challenges in that the population trends will very and transport services. Thus, the rising
growth. The challenge also involves organi- differ widely from one region to the next and, average age of the population will also not
zing freight transport in such a way that it has as a result, there will be regional differences in result in less traffic. Rather, there is likely to
as little adverse impact as possible on people’s the way in which the growth of freight traffic be a rise in the number of delivery, home and
mobility – more specifically on passenger flows evolves. Whereas in some regions there health care services. This is yet another reason
transport. is likely to be only a moderate rise in the level why, despite a declining population, there will
of freight traffic, there will be much more be a further increase in passenger and tonne
b) Climate change and environmental pronounced growth in the volume of freight kilometres.
protection traffic on the main transport arteries leading
to and from seaports and between the major d) Changed conditions of work and
More traffic, if it is not organized more ef- conurbations. These regionally differentiated skills requirements
ficiently, also means more emissions of pollut- trends mean that the freight transport in-
ants and CO , more noise and more land take. dustry will have to make major adjustments. It is true that operators in the freight
²
In addition, the energy consumed by transport But it is up to transport policymakers, more transport and logistics sector benefit from
causes problems, because 71 % of all transport This brings us to the second major challen- than anyone else, to establish infrastructure the rising demand for freight transport that
in the European Union is dependent on pe- ge addressed by this Masterplan. We have to investment priorities that reflect the different increasing globalization and spatial and
troleum, and in the road transport sector this make transport environmentally acceptable requirements. Investment in the foreseeable functional division of labour involve. But they
figure rises to 97 %. Moreover, transport is re- and climate-friendly and shape it in such a way pinch points in the transport system on the
sponsible for around 20 % of all CO emissions that it has as little adverse impact as possible main arteries will thus be of key importance.
²
in the EU. Road haulage accounts for around on our quality of life. This means that trans- This will also benefit the population in less
one third of all CO emissions from road trans- port has to consume less energy and become favoured areas, because regions with a decli-
²
port. As CO emissions from private transport more efficient, cleaner and, not least, quieter. ning population and lower traffic growth are
²
continue to decline and the volume of road This is also in the freight transport sector’s also dependent on the supply of goods via the
haulage increases as predicted, this ratio will own interests, and they realize this. Because busy main supply arteries being secure.
increasingly deteriorate to the disadvantage of noise, environmental pressures and health ha-
road haulage. And there is another factor here. zards caused by freight traffic will, in the long Demographic change impacts on the
Given the fact that the cost and energy effi- run, mean that the population is less willing to freight transport and logistics system in ano-
ciency of large diesel engines is already high accept freight transport. ther respect. It entails changed logistics and
today, the technological scope for conceivable mobility requirements of an ageing popula-
further savings in heavy goods vehicle engines c) Demographic change tion and, as a result, presents the transport
is limited – unlike passenger car engines – and,
moreover, these savings will not be possible in According to forecasts by the Federal Sta- 3
Federal Statistical Office (2006): 11th coordinated
the short term. tistical office, the population of Germany will population projection.
1 I n t roduc t ion In t roduc t ion 1
also face increasing challenges in that they are industry and its workforce operate. Logistics required for enhancing safety and security in that the financial and administrative burdens
confronted with a growing demand for labour takes place worldwide and around the clock. such a way that they have as little adverse im- on operators and the public authorities are mi-
while the workforce itself is shrinking. Today, Operators and their workforce will face increa- pact as possible on the ability of the transport nimized, while ensuring that the population is
already, many fields of the freight transport sing pressure to meet tight delivery deadlines. system to operate efficiently and speedily and supplied in an optimum manner.
and logistics sector are experiencing difficulty In addition to staff training, therefore, the
in recruiting skilled personnel. An ageing and creation of good working conditions is a key
declining population will make it even more task that operators have to address. It is the re-
difficult to meet the demand for skilled labour sponsibility of the government to enact effec- . Sustainability as a benchmark of transport policy
in the decades ahead. Thus, the logistics sec- tive social legislation and monitor compliance
tor, like German industry as a whole, faces the with it. In a changing environment, preserving means, first and foremost, that transport po-
challenge of preventing a slowdown in growth mobility means reshaping transport. This is licy is there to serve people, and that includes
caused by lower manpower resources resul- e) More exacting safety and security the responsibility of government, industry and future generations. Transport policy must be
ting from demographic change. requirements civil society. fashioned in such a way that mobility remains
possible, as the basis of individual develop-
At the same time, advancing specializa- Rising levels of freight traffic, the incre- In this context, the Federal Government is ment and social exchange, and that the foun-
tion, technological innovations and increa- asing workload of people employed in the guided by the principle of sustainability. This dations of our prosperity are preserved. To put
sing international competition are radically freight transport industry, plus the higher
changing the conditions of work and the skills average age of road users resulting from de-
requirements for people employed in the mographic change and the threat of natural
freight transport and logistics sector, 44 % of disasters mean that transport policymakers
whom were without vocational training as are having to focus more on questions of
recently as 2004. 4 Rising skills requirements transport safety. In addition, there is a need for
could mean that the shortage of skilled labour transport security to protect the supply chains
becomes a problem for logistics operators in against the threat posed by terrorists.
the medium term. The workforce is becoming
a key factor for the successful development Globalization and the associated interde-
of the logistics and transport industry. In the pendence between national economies have
future, therefore, its competitiveness will de- made freight transport and logistics more
pend primarily on whether operators succeed vulnerable. The Federal Government considers
in training their employees to give them the it to be a joint task to enhance the security of
skills they require and – given that their work the supply chains and thus also of the people
will become more demanding – in motivating employed in the freight transport industry.
them. Here, in-company basic and further What is needed is continuous international
training will play a key role. agreement on how to ensure security for
transport and trade flows. Lasting safety and
At the same time, increasing global security in cross-border transport is only pos-
competition will intensify the competitive sible through international cooperation. The
environment in which the freight transport challenge consists of organizing the measures
4
Fraunhofer Institute for Integrated Circuits – Working Group for Technologies in the Logistics Services Industry (2006): Stand
und Entwicklung der Logistik in Deutschland, commissioned by the Federal Ministry of Transport, Building and Urban Affairs.
1 I n t roduc t ion In t roduc t ion 1
it another way, the mobility we enjoy today resources and thus also the quality of life
and the way in which we shape our transport of the present and future generations are
system and its infrastructure must not be at preserved.
the expense of the mobility and quality of life
of our children and grandchildren. 3. The social benchmark – transport is to en-
able everyone to participate in public life.
The Federal Government’s transport po- Transport policy thus has a social respon-
licy is thus based on the three benchmarks of sibility – for affordable mobility, for safety
sustainable action: and fairness in transport and for good
working conditions for people employed
1. The economic benchmark – transport is to in the freight transport industry.
make a lasting contribution to prosperity,
employment and the competitiveness of The Federal Government has thus adopted
the German economy, without impacting an integral approach in this Masterplan. The
excessively on other land uses. Competiti- aims of the measures contained in the Master-
on, as a driver of quality and efficiency, is plan are economic efficiency, environmental
of great importance here. friendliness and social responsibility.
2. The ecological benchmark – transport is
to be shaped in such a way that natural
. Transport policy in social dialogue
Sustainability, as the combination of A total of over 700 participants contribut-
economic, ecological and social requirements, ed their expertise and experience. The results
cannot be achieved unless all stakeholders are of this dialogue process have been drawn for action resulting from the dialogue pro- tization, which will be continuously reviewed
involved. Thus, from the outset, the process of together in a list with proposed measures. cess in the “Transport Policy Guidance for a and updated in accordance with the criteria of
developing the Masterplan aimed to link up This Masterplan is the outcome of a process Freight Transport and Logistics Masterplan”. sustainability (including the financial criteria).
players from industry, academia, government in which the federal states, associations and In line with this guidance, and as a result of
and civil society on a broad basis and to over- Federal Government departments were invol- the consultations between the government Responsibility for implementing the
come structures of thinking and working that ved. This was followed by a process of assess- departments, with the federal states and measures enumerated in this Masterplan
are “set in stone”. To launch such a joint pro- ment by the Federal Ministry of Transport, stakeholders from industry, academia and lies with the different players. Thus, for each
cess of development and learning, the Federal Building and Urban Affairs, during which the associations, the present Masterplan of the measure, the Masterplan states who is respon-
Ministry of Transport, Building and Urban other government departments had an oppor- Federal Government has been developed for sible for its implementation. And the same ap-
Affairs staged a number of thematic work- tunity to provide comments. the future direction of freight transport in plies to implementation as applied to the pro-
shops with experts from industry, academia, Germany. Given the large number of envi- cess of developing the Masterplan. It will not
authorities of the federal states and associa- In September 2007, the Federal Minister saged targets and proposed measures, not be a success unless all sides continue to be wil-
tions (including unions, trade associations and of Transport, Building and Urban Affairs set all of which were convergent, the aim of the ling to engage in a dialogue and to cooperate.
environmentalist groups). out his benchmark for assessing the proposals Masterplan was to carry out an initial priori-
1 I n t roduc t ion In t roduc t ion 1
As the European Union grows more closely Plan for Freight Transport Logistics, which was ltural production and to prevent any further traffic flows, which in turn will spread the load
together, transport policy has to be conceived presented in the autumn of 2007, are seam- deterioration in the quality of life of people on transport infrastructure more evenly and
and planned in European terms. There was lessly linked and complement each other. It is living along transport routes, it is imperative enhance the capacity of the infrastructure.
an intensive exchange of views between the now imperative that we continue this dialogue that optimum use be made of the existing In the federal trunk roads sector, the aim is to
Federal Ministry of Transport, Building and with the greater involvement of our European infrastructure in order to limit upgrading and significantly reduce congestion by installing
Urban Affairs and the European Commission. neighbours, some of whom have likewise star- new construction to that which is absolutely further active and strategic traffic manage-
That is the reason why the Freight Transport ted to develop masterplans. essential and to focus such work primarily on ment systems, by allowing moving traffic to
and Logistics Masterplan and the EU’s Action removing bottlenecks in the transport system. use the hard shoulder at certain times and
by introducing a roadworks management
The Federal Government’s aim is thus system that minimizes congestion. On the
to better interlink the individual modes of railways and waterways, latent capacity is to
. Objectives of the Masterplan transport as part of an integrated transport be systematically unlocked by using modern
system in order to make optimum use of the telematics technologies. At the same time, all
A Making optimum use of transport optimum use of the existing capacity inherent strengths inherent in each mode and enhance these measures will help to enhance transport
infrastructure – shaping transport in our transport system. It will not be possible the capacity of the system as a whole. Within safety.
to make it more efficient to cope with the expected additional traffic the framework of such an integrated transport
volume by simply constructing new and up- strategy, the Federal Government attaches If an integrated, high-capacity transport
In view of the considerable growth in grading existing transport infrastructure. For great importance to seaports, inland ports and system is to be preserved on a permanent ba-
traffic and the tight constraints on public financial and economic reasons, for reasons airports as key points of interchange between sis, it is absolutely essential that the long-term
funding, the Federal Government’s foremost of nature conservation and landscape protec- the different modes of transport. The Federal functionality of transport infrastructure be
objective is to enhance efficiency and to make tion, to ensure that land is available for agricu- Ministry of Transport, Building and Urban Af- ensured in the face of the foreseeable impacts
fairs will therefore present a National Airports of climate change. The Federal Ministry of
Strategy and a National Ports Strategy in order Transport, Building and Urban Affairs will the-
to enhance the competitiveness of German refore review the potential inherent in inland
ports and airports and improve the links waterways in a research programme, against
between these transport hubs and the inter-ur- the background of climate change, and deve-
ban transport network. In the future, it will be lop adaptation strategies in order to ensure the
important not only to make greater use of the long-term future of inland navigation in Ger-
environmentally friendly inland waterways many as an environmentally friendly mode of
but also to make greater use of the potential transport.
inherent in maritime shipping over medium
distances (short sea shipping). By doing so, it B Avoiding unnecessary journeys –
will be possible to reduce the level of freight ensuring mobility
carried by road and rail and free up additional
capacity in those modes. In addition to making better use of exis-
ting transport infrastructure, another overri-
In addition, the Federal Government will ding objective of the Federal Government is to
significantly expand the use of electronic avoid unnecessary freight mileage wherever
traffic control and management systems in this is possible without having an adverse
all modes in order to achieve better control of impact on the economy. Without proactive0 I n t roduc t ion 1
transport policy measures, the rising levels of number of empty journeys. It is up to opera-
freight traffic would not only have a signifi- tors to step up their investment in innovative
cant impact on the environment and people’s technologies and make their contribution to
quality of life. They would also entail the risk avoiding unnecessary journeys.
of our mobility coming to a standstill in total
gridlock on certain transport arteries. This has In addition, the Federal Government will
to be prevented. vigorously lobby at European level to ensure
that transit traffic in and through Europe
With regard to freight transport, the Fede- moves efficiently and sustainably. Germany re-
ral Government thus believes that maximum cognizes its European responsibility as a trans-
efficiency in traffic management, optimized port hub and transit country. That is why it is
control of logistics processes and the removal necessary, in Europe, to find ways of strengthe-
of bottlenecks in the transport system are ning the Lisbon process and minimizing the
absolutely essential to ensure that avoidable impact of transit traffic on the environment
journeys do not actually take place. Avoiding and quality of life.
C Shifting more traffic to the railways
and inland waterways
ral Government’s aim is that, within an inte- D Upgrading more transport arteries
The Federal Government is pursuing the grated transport system, the individual modes and hubs
objective of shifting much more traffic to the should be used and interlinked in such a way
railways and waterways. For this reason, it will that they can deploy their inherent strengths Avoiding unnecessary journeys, efficient
establish a regulatory framework and invest- in an optimum manner. traffic management and a modal shift will not,
ment priorities that will enable the rail mode by themselves, be sufficient to secure our mo-
to increase and sustain its share of freight The Federal Government supports bility in the long term. There are already noti-
traffic by 2025. The measures designed to measures that will result in more competition ceable bottlenecks in our transport infrastruc-
strengthen rail freight may at the same time in rail transport. European integration, with ture, and the volume of traffic is forecast to
help to enhance the capacity of the railways in the opening-up of the market for international rise significantly. Against this background,
the passenger sector. rail freight, is thus viewed positively. The Fede- the Federal Government will step up its efforts
ral Government supports the continuation of to upgrade the transport infrastructure on a
Strengthening the railways and water- European liberalization efforts. The fact that human scale and in an environmentally sound
ways is a major contribution towards making there is still a lack of harmonization must not manner. In doing so, it will take account of
our transport system more climate-friendly be used as an excuse by individual countries noise mitigation as well as the other aspects
and more environmentally friendly. In addi- to back-pedal on liberalization or suspend it. of environmental protection and nature
unnecessary journeys by means of greater ef- tion, shifting traffic to the railways and wa- Enhancing competition in rail transport will conservation, plus the interests of agriculture
ficiency will cut operators’ costs and thus also terways will also help to free up capacity on improve its competitiveness vis-à-vis the other and forestry. Plans are to be geared to an even
benefit the industry. Logistics strategies have the roads and tackle congestion. Thus, road modes of transport. A start should be made greater extent to the needs of the people in the
to be evolved so that freight transport opera- transport will also benefit from a strengthe- by evolving the regulatory framework. The local communities.
tions can be consolidated wherever possible ning of the railways and waterways. It is thus Federal Government will also lobby at Euro-
(e.g. in city logistics) and incentives have to be in no way a question of playing the individual pean level for fair conditions of competition In order to take account of the future
created for an ever greater reduction in the modes off against each other. Rather, the Fede- between the modes of transport. upgrading requirements as well as the rising I n t roduc t ion In t roduc t ion
expenditure necessary for the maintenance Despite rising levels of investment, it is tes, which have almost reached their capacity port Infrastructure Plan as being essential
of existing networks resulting from the in- still necessary to define priorities in upgra- limits today and will have to cope with a dis- for an effective segregation of long-distance
creasing wear and tear on the transport ding infrastructure. Here, it is necessary to proportionately high growth in traffic levels in passenger services and freight services.
infrastructure, which today already consu- take account of the considerable differences the future. Upgrading these bottlenecks in our
mes almost two thirds of total investment in traffic trends. For this reason, the Federal transport system will also benefit the provi- E Environmentally friendly and
in transport infrastructur 5, the Federal Government will give priority to upgrading sion of links to rural areas – including those a climate-friendly transport
Government has increased the federal fun- those transport arteries and hubs where there long way away from the actual construction
ding available for investment in transport are already capacity constraints today or works. Because the creation of adequate ca- Tomorrow’s transport is to be quiet, clean,
infrastructure. It calls on the federal states where such constraints are likely in the medi- pacity for freight and passenger traffic on the efficient and climate-friendly. As part of the
and local authorities to likewise significantly um term because traffic volumes are rising at a busiest main transport arteries is absolutely efforts to combat climate change, there has to
increase transport investment in their areas of disproportionately high rate, and those arte- essential if people and goods are to be able, in be a further reduction in the specific CO emis-
²
responsibility. Despite rising expenditure on ries and hubs where an appropriate adaptation the future, to reach every corner of our coun- sions from transport. The objective of redu-
maintenance, the financial scope for a targe- of the transport system would make it possible try quickly and punctually. At the same time, cing greenhouse gas emissions by 40 % by 2020
ted upgrading of the transport infrastructure to better exploit existing spare capacity. This prioritization also has to consider the objec- compared with 1990 levels, which was reaf-
is to be ensured in the future, giving due applies, for instance, to the some of the routes tives of structural policy, which aim to ensure firmed in the Integrated Energy and Climate
consideration to budgetary requirements. to and from ports and some north-south rou- balanced development throughout Germany. Change Programme, means that the transport
sector will also have to make a substantial
Against the background of the rising contribution. In this programme, the Federal
levels of freight traffic, but also the widely dif- Government has already reached agreement
fering levels of traffic on individual routes, the on a number of measures affecting the trans-
Federal Government will consider whether, port sector. They include the introduction of
and if so how, the requirement plans and mandatory CO limits for passenger cars at EU
²
capital budgeting for the roads, railways and level, increasing the share of biofuels – prefer-
waterways have to be adapted to the changed ably second-generation biofuels – in fuel con-
traffic trends and economic developments. sumption to 20 % by 2020, the climate passport
for passenger cars, the introduction of a
In order to enhance the efficiency of the carbon- and pollutant-based motor vehicle tax
main transport arteries, the Federal Govern- for newly registered passenger cars and the
ment is seeking a greater separation (“segre- inclusion of aviation and shipping in emissions
gation”) of slower freight traffic and faster trading. However, given the forecast growth in
passenger traffic, for instance by means of traffic levels, it is obvious that reducing speci-
lane management based on traffic volumes on fic energy consumption and CO emissions by
²
motorways and a greater separation, in terms technological means alone will not be suffici-
of space and time, of freight and passenger ent. The measures set out in this Masterplan to
services on the railways. Here, too, this will optimize the transport system, to shift traffic
not be possible unless the busiest routes are to the railways and waterways, to make freight
upgraded in a targeted manner. In the case transport operations more efficient, to opti-
of the motorways, this means systematically mize use of existing transport infrastructure,
widening them to six lanes. In the case of the and the other measures to relieve congestion
5 railways, it means the speedy delivery of those on the roads, especially extending the range
Cf. Federal Ministry of Transport, Building and Urban Affairs (2007): Investitionsrahmenplan bis 2010
für die Verkehrsinfrastruktur des Bundes. projects identified in the 2003 Federal Trans- of public transport services, thus also serve the I n t roduc t ion In t roduc t ion
purpose of further reducing energy consump- charges based on noise emissions, in order to same time, they represent the key factor in en-
tion and CO emissions in the transport sector. create an economic incentive to speed up the suring that the German logistics and transport
²
In addition, action is also to be taken to mi- retrofitting of the freight wagon fleet. At Euro- industry enjoys a development that is success-
nimize the use of agricultural and woodland pean level, it will lobby vigorously for concrete ful in the long term. Investment in the training
areas and nature conservation and landscape agreements on improved noise mitigation of their workforce is thus just as important for
protection sites, including the land needed in measures in the wagon fleet. the competitiveness of operators as invest-
compensation. ment in technology and their vehicle fleet. It
However, protection against traffic noi- is already becoming apparent that there will
One of the Federal Government’s major se is not solely a responsibility of the state. be a shortage of skilled labour. To counter this,
objectives is to reduce the noise associated The Federal Government therefore believes the basic and further training systems have to
with freight transport. The Federal Ministry that operators themselves are responsible be strengthened and evolved to meet the more
of Transport, Building and Urban Affairs has for perceptibly reducing freight traffic noise exacting requirements.
by purchasing low-noise vehicles in the road
haulage sector and by retrofitting the wagon The Federal Government, together with
fleet in the rail freight sector. This is in the operators, trade associations, chambers of
operators’ own interests, and they realize this, industry and commerce, and unions, will
because the noise caused by freight traffic thus launch a basic and further training drive
and the associated impairment of people’s before the end of 2008 and incorporate it internationally operating companies in the
quality of life will, in the long run, mean that into the skills initiative for Germany. Regu- sector and the leading research institutions.
the population is less willing to accept freight lar industry summits, to which the Federal
transport, thereby jeopardizing the economic Government will invite the aforementioned In addition, the Federal Government will
foundation of operators. players, will be held to achieve continuous task the Federal Office for Goods Transport
collaboration to improve the basic and further with evaluating the working conditions in the
F Good working conditions and training situation on the logistics market. freight transport and logistics sector annually
good training in the freight The Federal Government also believes that as part of its observation of the freight trans-
transport industry operators should create additional apprenti- port market. In order to ensure good working
ceships, as they pledged to do in the National conditions in view of the increasing pressure
The Federal Government is firmly commit- Pact for Training and Young Skilled Workers to meet tight delivery deadlines that those
launched a National Traffic Noise Mitigation ted to improving basic and further training in Germany of 5 March 2007, and improve employed in the sector are facing, it is abso-
Package, which addresses noise mitigation and ensuring good working conditions in the job skills in order to lay the foundations on lutely essential that operators comply with
measures in all modes of transport. In particu- freight transport and logistics sector. To this which they will be able meet their rising social legislation and provisions governing
lar, the desire to attract more traffic to the rail- end, it will launch continuous collaboration demand for skilled labour in the future. health and safety at work, road safety and the
ways is linked to the objective of significantly between all the major stakeholders – not only carriage of dangerous goods. Unless there is
reducing the noise caused by rail freight. In government bodies but also, and in particular, Logistics courses in higher education, significant progress here, the Federal Govern-
addition to structural measures such as noise operators, the appropriate trade associations despite being of outstanding quality, have so ment, in cooperation with the federal states,
barriers, the Federal Government has laun- and the unions. far tended to receive little attention. In order will step up checks to prevent social dumping
ched a pilot project to promote the retrofit- to improve the profile of this subject, the Fede- and non-compliance with legislation. It is in
ting of freight wagons with composite brake The people employed in the freight trans- ral Government will lobby for the creation of the interests of every operator to comply with
blocks, which will result in a lasting reduc- port and logistics sector are especially affected an internationally recognized course of study the appropriate rules and regulations. Because
tion of the noise caused by freight trains. It is by the changes in the transport sector descri- that provides basic and further training in the satisfied, motivated and healthy workers from
also seeking a differentiation of track access bed at the beginning of this document. At the field of logistics and that is closely linked with the basis of all long-term economic success. I n t roduc t ion M e a su r es: M a k ing op t im u m use of t r a nsport i n f r a s t ruc t u r e –
sh a ping t r a nsport t o m a k e i t mor e ef f icien t
II. Measures
. Implementation A Making optimum use of transport infrastructure –
shaping transport to make it more efficient
In order to make Germany even more activity, the trade associations and unions plus
attractive as a centre for logistics, all stakehol- civil society groups as representatives of the
ders can, and must, make a contribution, each various societal interests. One of the objec-
in their own area of responsibility. The Federal tives of this Masterplan is to arrive at lasting
Government, federal states and local authori- collaboration between all the stakeholders,
ties are responsible for creating the regulatory to coordinate interests and represent them at
framework and preparing the infrastructure European level, thereby jointly ensuring that
for the tremendous growth that lies ahead. Germany remains the number one location for
freight transport and logistics in Europe.
The Masterplan describes the framework
of freight transport policies that the Federal The Federal Ministry of Transport, Buil-
Government believes should have priority. ding and Urban Affairs will conduct an initial
Substantial funding is available in the finan- evaluation of the measures and their impacts.
cial planning to 2012 for those measures that
are in the area of responsibility of the Federal It is important that all stakeholders inter-
Government. Thus, for 2009, around 10.2 bil- act in implementing the measures – depen-
lion euros has been earmarked for investment ding on their responsibility and acknowled-
in the classic road, waterway and rail modes ging the fact that the only way to effectively
plus combined transport. That is around 1 bil- address all the challenges is by collaborating,
lion euros more than in the current financial and that this is the only way to meet the eco-
plan. Transport investment will be sustained nomic, ecological and social requirements in
at a high level in the period from 2010 to 2012. transport policy.
This increase in transport investment will
be made possible by increasing, and making It is now imperative that we continue the
more ecological, the tolls that are imposed social dialogue on transport policy, which has
on heavy goods vehicles for the use of federal been intensified by the Masterplan process,
motorways, based on the “user pays” principle. and that we make further use of the valu-
All the additional toll revenue will be invested able pool of expertise, experience, contacts
in the transport sector. In addition, proceeds and creativity. The network of players from
from the privatization of the railways will in- industry, academia, government and civil
crease the level of investment that is available society, which emerged during the process of
for transport infrastructure. And – provided developing the Masterplan, forms an excellent
that it offers value for money – there is to be a basis for this.
greater involvement of private sector capital
in the provision of transport infrastructure by
means of PPP projects.
But action is also required on the part of
the operators, as the actual agents of economic Me a su r es: M a k i ng op t i m u m use of t r a nsport i n f r a s t ruc t u r e – M e a su r es: M a k ing op t i m u m use of t r a nsport in f r a s t ruc t u r e –
sh a pi ng t r a nsport t o m a k e i t mor e ef f ici en t sh a ping t r a nsport t o m a k e i t mor e ef f icien t
A 1 Develop and deploy more traffic management systems A 2 Standardize and link up the traffic management systems
on busy sections of federal motorway on federal motorways nationwide
Current situation EU relevance Current situation Responsibility
In many areas, traffic management systems This measure is consistent with EU transport On the German motorway network, the cap- The federal states, in cooperation with the
can help to improve traffic conditions. By policy. ture and analysis of traffic data and the control Federal Ministry of Transport, Building and
means of active control measures, they make it of traffic using traffic management systems is Urban Affairs, are responsible for developing
possible for road users to adapt their behaviour Implementation period performed by the infrastructure operators at and implementing the strategy.
to the traffic situation at any given time. Dyna- This measure is due to be launched in 2008. federal state level. At present, there is no nati-
mic displays such as maximum speeds, bans The aim is to have the equipment installed on onwide link-up of these traffic management Budgetary relevance
on overtaking or lane control signals make all busy sections by 2015. systems. Nor is there any coordination or co- This measure will be funded from the Federal
traffic flow more smoothly, thereby avoiding operation between the operators on the scale Ministry of Transport, Building and Urban
driver behaviour that could result in congesti- required. This means that it is not possible to Affairs’ budget.
on or accidents. This modern telematics equip- exploit the potential for making more efficient
ment has not yet been installed on many busy use of the federal motorway network. EU relevance
sections of the German motorway network. This measure is consistent with EU transport
Description of the measure policy.
Description of the measure Taking account of existing traffic manage-
Busy sections of motorway on which telema- ment systems, the authorities of the federal Implementation period
tics equipment has not yet been installed are states, in cooperation with the Federal Mi- This measure is due to be launched in 2008.
to be equipped with such systems at a faster nistry of Transport, Building and Urban Affairs The strategy is due to be finalized by the end of
rate than in the past. Systems already installed and the industry, are to develop a strategy 2009 and implemented in its entirety by 2015.
are to be optimized and, if necessary, up- for linking up existing traffic management
graded to reflect the state of the art. systems. The aim of the strategy is to facilitate
responsive and efficient traffic management
Impact on federal motorways. This will involve, for
This measure will enhance the capacity of the instance, predictive information on conges-
corresponding sections. It will enhance the tion, available parking spaces plus measures
efficiency of the entire motorway network that impact on the flow of traffic, such as speed
and help to avoid congestion and improve limits or bans on overtaking.
road safety. This is likely to result in additional
positive effects with regard to climate change Impact
mitigation and environmental protection, for By providing intelligent traffic informa-
instance by reducing CO emissions. tion and control, this measure will make
²
it possible to enhance capacity on federal
Responsibility motorways throughout the country. By
Federal Ministry of Transport, Building and means of better route planning and the
Urban Affairs in cooperation with the federal ability to react at short notice to evolving
states affected. traffic situations, it will be possible to ma-
nage transport movements more reliably.
Budgetary relevance This will also have a positive impact on the
This measure will be funded from the Federal environmental acceptability of transport
Ministry of Transport, Building and Urban and reduce its climate change impact. The
Affairs’ budget. measure will also improve road safety.0 Me a su r es: M a k i ng op t i m u m use of t r a nsport i n f r a s t ruc t u r e – M e a su r es: M a k ing op t i m u m use of t r a nsport in f r a s t ruc t u r e – 1
sh a pi ng t r a nsport t o m a k e i t mor e ef f ici en t sh a ping t r a nsport t o m a k e i t mor e ef f icien t
A Speed up implementation of the “Development programme to increase the number A 4 Continue and intensify the measures to tackle congestion by optimizing
of parking areas at service stations and rest areas on federal motorways” roadworks management
Current situation mate change impact, and to improve working Current situation Impact
There are insufficient parking areas for heavy conditions. Congestion causes economic damage and This measure is designed to result in a smoo-
goods vehicles on and in the vicinity of the harms the climate and the environment ther flow of traffic at roadworks sites. This will
federal motorways. This may increasingly Responsibility through an unproductive increase in emissi- reduce congestion and minimize the econo-
result in HGVs being improperly parked, Federal Ministry of Transport, Building and ons. Experts have estimated that congestion mic damage it causes.
additional traffic searching for parking spaces Urban Affairs, highway authorities of the fede- on our motorways costs the economy at least
and even in the permissible driving periods ral states (delegation of administrative pow- ten billion euros and is responsible for billions Responsibility
being exceeded, which would lead to a greater ers), local authorities. Plus freight forwarders of litres of fuel being consumed unnecessa- The Federal Ministry of Transport, Building
risk of accidents. The forecast rise in the level associations, Autobahn Tank & Rast Holding rily. The growth in traffic levels predicted by and Urban Affairs, in cooperation with the
of freight traffic, combined with the new rules GmbH, Association of German Truck Stops current forecasts could seriously exacerbate federal states, is responsible for implementing
governing driving hours and rest periods, will (VEDA). this situation. the measures.
result in even greater demand. The greatest In many cases, roadworks on motorways
demand is at the border-crossing points on the Budgetary relevance impede the flow of traffic, increase the risk Budgetary relevance
routes to Eastern Europe. The Federal Minister This measure will be funded from the Federal of congestion and reduce road safety. Today, Implementing the measures will result in
of Transport, Building and Urban Affairs has Ministry of Transport, Building and Urban an average of 200 to 280 roadworks sites are additional costs for roadworks. However,
recognized this urgent need. In the autumn of Affairs’ budget. A total of € 250 million will in place every day for the maintenance and these additional costs will be more than offset
2007, he set up an “HGV Parking Facilities on be available for the development programme operation of the federal motorways. Experts by substantial economic gains. The funds
Motorways” Project Group to address the issue over the period to 2015. Of this sum, € 35 milli- assume that these roadworks are responsible required will be included in the budget esti-
of enhancing capacity. on is to be invested in 2008. for more than one third of all congestion on mates of the Federal Ministry of Transport,
motorways. Building and Urban Affairs.
Description of the measure EU relevance
An additional 11,000 parking spaces are to be The European Commission (DG TREN) has Description of the measure EU relevance
created. The activities of the Federal Ministry launched a pilot project aimed at creating a Roadworks management is to be optimized to The measures are consistent with the objec-
of Transport, Building and Urban Affairs network of secure HGV parking areas in the avoid congestion. This involves: tives of EU transport policy, especially regar-
Working Group to identify requirements and EU. The project has initial funding of € 11 • reducing the time for which a roadworks ding an increase in road safety, an improve-
construct additional HGV parking areas cover million to 2009 and is currently occupied with site is in place by wording tender docu- ment of the flow of traffic in Europe and a
the entire federal motorway network. Because definition tasks. ments and contracts appropriately and by reduction in emissions from transport.
of the pressing problems at the border-cros- performing work outside normal working
sing points on the routes to Eastern Europe, Implementation period hours, if necessary on Sundays or at night; Implementation period
the identification of requirements and cons- Creation of 11,000 additional parking spaces • avoiding cumulative congestion by means The measures are to be launched in 2008.
truction for these areas are to be brought for- by 2012. of better nationwide coordination of road-
ward. Account will be taken of the guidelines works;
governing service stations and rest areas of the • facilitating a smoother flow of traffic at
federal states. the roadworks site by better adapting the
measures taken (e.g. number and width
Impact of lanes) to the traffic situation and ma-
This measure will help to make optimum king greater use of dynamic traffic control
use of the transport infrastructure, to avoid measures (e.g. display of speed limits and
unnecessary journeys, to make transport more bans on overtaking).
environmentally friendly and reduce its cli-You can also read
