Chapter 1. Introduction

Background

During the onset of the COVID-19 pandemic, various states and federal agencies eased commercial motor vehicle (CMV) weight limit regulations to facilitate safe and efficient emergency transportation of medical and other essential relief supplies. States used a variety of approaches that sometimes conflicted and were difficult to navigate. For example, Colorado suspended the gross weight provisions for vehicles weighing 80,001–84,999 pounds that were transporting emergency goods and services, while neighboring states increased their interstate weights to 90,000–100,000 pounds.

Similarly, Virginia, Texas, Georgia, Illinois, and Maryland implemented regulatory relief guidelines during the pandemic. However, because some suspended restrictions are only applicable while traveling in and through a particular state, CMV operators can face many challenges or confusion when ensuring compliance with regulations while traveling across jurisdictional lines.

Although federal and state agency response to the COVID-19 pandemic was swift, it also highlighted an issue often faced by oversized/overweight (OS/OW) CMV operators that traverse different regulating jurisdictions—a lack of consistency in definition and harmonization of policies and regulations. A Federal Highway Administration (FHWA) report (Schaefer and Todd, 2018) documents most of these issues, along with various states’ best OS/OW permitting practices.

A recent guide to emergency management at state agencies (Frazier et al., 2020) recognizes the challenges to state departments of transportation (DOTs) and other transportation-related agencies in implementing and coordinating across local, tribal, state, regional, and federal levels.

State emergency planning has improved in the last decade, and advances in emergency management approaches support the efforts of transportation agencies. At the same time, risks of adverse natural and man-made events are increasing due to new complexities, including aging infrastructure, supply chain challenges, and population hazard exposures and behaviors.

Objectives

This research focuses on issues faced by state agencies in successfully implementing regulatory relief of overweight CMV requirements during emergencies. The research objectives of this study are as follows:

• Develop consistent definitions of emergencies, emergency commodities (classification/type), and other concepts.
• Identify successful practices, procedures, and processes for increasing weight limits during emergencies, including harmonization with neighboring jurisdictions.
• Develop a decision framework that considers different emergency scenarios that are linked with successful practices, procedures, and processes.

• Highlight successful communication practices and training opportunities to conduct before emergencies occur.

Research Approach

The project included the following tasks:

• Task 1—Project Management. Task 1 covered project management to ensure effective and efficient coordination of other tasks, deliverables, and team members.
• Task 2—Review Domestic and International Research. This task aimed to review FHWA and Federal Motor Carrier Safety Administration (FMCSA) regulations and rulings, Federal Emergency Management Agency (FEMA) guidance, catalogs, research reports, guidelines, manuals, state emergency plans, disaster after-action reviews, and other relevant documents. The key objective of Task 2 was to capture the various definitions of emergencies and identify best practices for overweight commercial vehicle regulatory relief in support of declared disasters. The Task 2 technical memorandum was reviewed by the National Cooperative Highway Research Program (NCHRP) panel and was updated by the research team based on the comments received.
• Task 3—Interview Stakeholders and Review Current Best Practices. The purpose of this task was to (a) compile best practices, procedures, and decision processes used by state and local transportation agencies for increasing weight limits during emergencies; (b) determine the rationale behind these processes, practices, and decision processes; and (c) understand and document best practices for harmonization with neighboring jurisdictions. The outcomes of Task 2 informed the survey developed in this task. The following approach was used:
  • Develop an outreach plan.
  • Obtain approvals (as necessary).
  • Conduct outreach and summarize findings.
  • Conduct virtual workshop.

  The survey and outreach plan were shared with the NCHRP panel and revised based on the panel comments. The research team then conducted an online web survey of state permitting agencies in April, followed by phone interviews and two virtual workshops with stakeholders to update findings. Another purpose of the virtual workshops was to brainstorm and bring together all perspectives. The follow-up interviews were conducted based on the online survey responses and workshop discussions to inform the next task.

• Task 4—Describe Roadmap for Success. The objective of this task was to develop and describe recommendations and tools necessary for successful emergency CMV weight limit regulatory relief. This task includes the following subtasks:
  • Define a consistent framework.
  • Identify promising practices for emergency CMV weight exemptions.
  • Identify successful methods for harmonization with neighboring jurisdictions.
  • Conduct panel meeting.
• Task 5—Develop a Decision Framework and Guidance Materials. In Task 5, the research team developed deliverables. This task is divided into subtasks that are described below:

• Develop guide.
• Develop webinar and PowerPoint slides.
• Identify training opportunities.
• Develop implementation plan, final report, and draft article.

Report Organization

The remaining chapters and appendices of this report include the following:

• Chapter 2—Literature Review. This chapter summarizes findings from the literature review (Task 2) and discusses emergencies and best practices for overweight commercial vehicle regulatory relief in support of declared disasters.
• Chapter 3—State of Practice. This chapter presents the details and available results from the survey, virtual workshops, and follow-up interviews conducted in Task 3.
• Chapter 4—Final Deliverables. This chapter summarizes the approach toward developing the final deliverables based on Task 4, which lays a roadmap for the successful implementation of findings, and Task 5, which is the development of a decision framework and guide materials.
• References. The reference list includes all cited studies, the laws, regulations, and codes.
• Appendix A—State Authority and Regulation for Oversize/Overweight Permits and Emergency Declarations and Powers. Appendix A contains a summary of state disaster and emergency authorities.
• Appendix B—Survey Transmittal Letter, Survey Questions, and Follow-Up Interview Questions. Appendix B includes the survey transmittal letter that was distributed to the Transportation Research Board (TRB) state representatives and the online survey and follow-up phone interview questions.
• Appendix C—Survey Responses. Appendix C summarizes the individual agency responses to each survey question.