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Freight Transport Policy and Measures in Japan
Table of Contents
1. Current State of Freight Transport
2. Major Issues of Freight Transport
3. Comprehensive Freight Transport Policy
4. Examples of Recent Measures
Yoshi Imanishi
Public Planning & Policy Studies, Inc
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1. Current State of Freight
Transport in Japan
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(1) Freight Transport Volume Started to Level-off
The freight transport demand in ton lifted increased rapidly during the high economic growth
period up to 1990. Since then, it has remained stable.
The freight transport demand in ton-km, traffic volume of freight vehicle and GDP have been
growing proportionally.
 Freight volume transported (tons)
 GDP at constant price, Freight volume and Traffic volume
declining
7 times larger
Source: Freight Volume in ton-km: “Handbook for Traffic Economy Statistics for 2003”
Traffic Volume in vehicle-km: “Traffic Statistics for 2003”
GDP: Website of the Economic and Social Research Institute, Cabinet Office
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(2) Decrease in Freight Transport Volume:
Economic Stagnation and Expansion of Service Industry
Due to the expansion of the service industry and the slow growth of the economy, freight volume
per GDP has been decreasing since 1970. The mainstream of the economy has been shifting from
manufacturing to the service industry.
 Ratio of employees by industry type
Source: “Report of the Labor Force Survey”
 Freight volume per GDP (ton, tonkm)
Source: Freight volume in ton-km: “Handbook for Traffic Economy Statistics for 2003”
GDP: Website of the Economic and Social Research Institute, Cabinet Office
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(3) Rapid Motorization in Japan up to the 1990’s
Until around 1970, rail and marine transport played the leading roles in domestic freight transport.
After this period, an increase in freight transport by truck supported the high economic growth that
lasted until 1990. There has been no major change in the modal-split in freight transport recently.
 Transport modal share (ton-km transported)
 Transport modal share (ton lifted)
100%
100%
90%
80%
Modal Share (ton-km)
Modal Share (ton)
80%
60%
40%
20%
70%
60%
50%
40%
30%
20%
10%
0%
2000
1995
Coastal Shipping
1990
1985
1980
Truck Railway
1975
1970
1965
1960
Source: Handbook for Traffic Economy Statistics for 2003
Aieline
1955
Coastal Shipping
2000
1995
1990
1985
1980
1975
1970
1965
1960
Truck Railway
0%
Airplan
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(4) Enhancement of HGVs’ Load Efficiency
Due to the growth in the size of freight vehicles and in the share of for-hire freight vehicles, the
laden weight per vehicle has been increasing. So, freight transport is improving in efficiency by
larger loads on each truck.
 Average Laden Weight per Vehicle
average loading capacity
Source: “Handbook for Traffic Economy Statistics for 2003” and “Annual Statistical Report on Automobile Transport”
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(5) Advanced and Sophisticated Logistics
Along with the industrial advances, the size of each parcel has become smaller and lead time has
become shorter. In other words, small quantity and JIT (Just-In-Time) logistics is prevailing. There
is more demand for quickness and punctuality. This trend will be a factor in increasing the freight
vehicle traffic volume.
 Parcel size changes
 Increase in freight transport with
designated delivery dates
Data of Discussion Group for Logistics Policies (797 responses to a questionnaire for manufacturers and wholesalers in 1999 by Nippon Express Co., Ltd.)
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2. Major Issues of
Freight Transport in Japan
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(1) Traffic Congestion and High Proportion of Freight Vehicle Traffic
Japan has two remarkable traffic characteristics:
1) Low travel speed on the general roads (as low as 20km/h in major cities)
2) High proportion of freight vehicle traffic (especially in major cities)
 Comparison of traveling speeds
Source: Japan: “Road Traffic Census for 1999”
U.K.: Adopted from government data
Japan: General National Highways, UK: A Roads
 Proportion of freight vehicle traffic
Source: Japan: “General Traffic Volume Survey of Road Traffic Census for 1994”
U.K.: Adopted from government data
France: Adopted from government data
* : Proportion of Whole country are measured on ton-km basis.
** : Proportions of Tokyo, London and Paris are measured on vehicle number basis.
They are calculated as the average proportion of freight vehicle traffic on the
roads that are passing through each screen.
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(2) Environmental Problems
The environment such as air pollution gradually improved recently. However, only 60% of
measurement stations have fulfilled the environmental standard in major metropolitan areas. We
still need to make efforts to improve the environment in our country.
 Achievement Rate of Environment Standards (SPM)
Nationwide
Source: “Air Pollution in Japan”
Designated areas*
Achievement Rate =
No. of stations satisfying E.S. / Total No. of stations
Designated areas: Tokyo Metropolitan area, Aichi-Mie area
and Osaka-Hyogo arae
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(3) Increasing Traffic Accidents
Until around 1970, the number of traffic accidents was increasing sharply as road development
could not keep up with the growing traffic demand. After that, efforts to implement road safety
measures brought a decline in accidents. Recently, while the fatalities from traffic accidents have
been decreasing, the number of accidents has been increasing.
Source: “Traffic Statistics for 2003”
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(4) Low Usage Rate of Toll Expressways
The expressways made a meaningful contribution to freight transport efficiency. However, in
recent years the usage rate of expressways has been decreasing even as the length of
expressways is extending. Due to advances in cost management resulting from the stagnant
economy, transport businesses are making efforts not to use expressways, in order to avoid
spending money on the tolls.
Usage Rate of Expressway =
vehicle-km on Expressway / vehicle -km on all roads
Source: Ministry of Land, Infrastructure, and Transport
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3. Comprehensive
Freight Transport Policy
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Outline and Targets of “New Comprehensive Program of Freight
Transport Measures”
In Japan, we have a “Comprehensive Program of Logistics Policies” that sets forth the basic
principles of Japan’s logistics policies. It have been promoted to establish a logistics system where
both economic growth and environmental improvement are possible.
Goals of the New Comprehensive Program of Logistics Policies
1. Creating a logistics market that is internationally competitive in various
aspects, including cost effectiveness
2. Constructing a market system that reduces environmental burdens
and contributing to a recycle-oriented society
Target Year: 2005
The Outline of the New Comprehensive Program of Logistics Policies
In April 1997, the “Comprehensive Program of Logistics Policies” was approved in a Cabinet meeting.
This program was specifically geared toward the realization of internationally competitive logistics
services in various aspects including cost effectiveness by 2001.
The “new Comprehensive Program of Logistics Policies” was made, before entering the targeted year of
the previous program, to set the new goals based on the changes in situation since 1997 along with
specific measures to achieve such goals.
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Numeric Targets of the Measures and Current Progresses
“New Comprehensive Program of Freight Transport Measures” sets numeric targets and monitors
progress toward those targets. Some targets are expected to achieve, however, some targets
might not to achieve.
Specific goals
Standardization of unit load
Current status
(2001)
Target
(Target year)
Proportion of palletizable freights that
are actually palletized
75%
90%
(Around 2005)
Standard Palletization
50%
50 – 60%
(Around 2005)
Development of major domestic
shipping terminals for intermodal
transportation
Proportion of population living in areas
where a round trip to/from the
intermodal terminal within half a dayis
possible.
80%
90%
(Around 2010)
Implementation of multimodal
transportation measures
Proportion of major airports and ports
accessible within 10 minutes from
motorway interchanges
Airports: 60%
Ports: 40%
90%
(Around 2010)
Simplification of procedures for
imports and exports
Time required for an imported freight to
be departing from a container yard
after its arrival in a port
All freight: 3 days
Containers: 2.5
days
2 days
(Around 2005)
Promotion of efficiency in city
logistics
Average speed of vehicles in the three
major cities
20km/h
25km/h
(Around 2010)
Load efficiency of HGVs
45%
50%
(Around 2010)
Achievement rate of modal shift
40%
More than 50%
(Around 2010)
Modal Shift
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4. Examples of
Recent Measures
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(1) Development of Arterial Road Networks
 Nationwide Expressway Networks and Regional Ring Road Networks
The expressway networks covering the whole country and the ring road networks designed to
improve traffic congestion and the environment in major cities are under development. Although
the construction started in the 1960s, it is still only about halfway completed.
 Expressway networks
Source: Ministry of Land,
Infrastructure, and Transport
 Ring road networks (Tokyo Area)
Length of Opened Expressways
(As of April 2004)
8,540km
Length of Opened Expressways
(As of April 2003)
121km
Length of Planned Expressways
14,000km
Length of Planned Expressways
518km
Percentage of Opened
Expressways
61%
Percentage of Opened
Expressways
23%
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 Reduction in Distribution Costs resulting from Road Development
The length of expressways and the total traffic capacity of arterial roads have been extending. Due
to the road development, traffic congestion has been mitigated and expressway usage has
increased, thus reducing freight transport costs to transport one ton for one kilometer (yen/ton-km).
 Length of expressways and the traffic capacity of
arterial roads.
the traffic capacity of arterial
roads
Source: Road Traffic Census for 1999
Annual Report of Road Statistics
Freight transport costs per ton-km (by trucks)
Decreasing
Source: Estimated logistics costs based on the cost-benefit
analysis manual with data of Road Traffic Census for 1999
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 Development of Access Roads to Airports and Ports
Many of the airports and ports are not connected directly with expressways in Japan. To improve
freight transport efficiency and the environment, the measures for direct accesses from
expressways to airports and ports are being implemented.
 Access rate of expressways to major airports and ports
(International comparison)
91%
84%
 Example: Development of access roads to
airports and ports in Nagoya
61%
61%
The target
percentage is
80% – 90%.
Source: Ministry of Land, Infrastructure, and Transport
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(2) Development of Distribution Center
 Example :Kobe Distribution Center
The development of distribution centers is on the way in the areas around expressway entrances
and exits. Those distribution centers have function both as a truck terminal and as a place for
business activities.
Kobe Distribution Center
Kobe Distribution Center
Fusehata
entrance/exit
To Miki City
Kobe
Logistics Center
To
To Akashi
Akashi Kaikyo
Kaikyo Bridge
Bridge
The Kobe Distribution Center has been in service since 1984, and the Fusehata Interchange of the Kobe-Awaji-Naruto Expressway opened in April
1998 inside the center. The center plays an important role as a distribution complex, located near the metropolitan area, with access to well-developed
transportation facilities, such as an expressway network.
Private sector investment targeting interregional logistics was brought in, and economic activity in this area was boosted by this distribution center.
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(3)Traffic Controls for HGVs
 Case 1 - Designated Roads for HGVs
The maximum gross vehicle weight for vehicles that can travel on any road is 20 tons. Selected
parts of the overall road network have been improved for larger vehicles to use. The maximum
gross weight allowed to travel is 25 tons on designated general roads and 36 tons on national
expressways.
Designated Road Network in Tokyo Area
(As of the end of FY 2003)
 The length of the road and the proportion of vehicles allowed to travel
(As of the end of FY 2003)
Maximum gross
vehicle weight
allowed to travel
Road type
36t
National expressways
7,343
1%
25t
Designated roads
44,390
4%
19,976
2%
1,100,430
94%
1,172,139
100%
20t
Other roads
Total length
National
roads
Local
roads
Length
Proportion
Source: Ministry of Land, Infrastructure, and Transport
Designated road:
Current status of road networks: oversize/ overweight vehicles can travel
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 Case 2 - Permission System for over-sized/over-weight Motor Vehicles
The GVW limit of vehicles that can travel on general roads without any restriction is 20 tons,
which is lower than European standard. To drive a vehicle heavier than 20 tons GVW, it is
mandatory to apply for permission.
In order for permission to be granted smoothly, a computer system is in operation. This system
searches the routes available for such vehicles and provides the drivers with the route information.
Anyone who drives an over-sized/over-weight vehicle is required to apply with the relevant road
administrator for traveling permission (Article 47-2-1 of the Highway Act). The driver shall carry
the permission while driving.
There are various ways of applying for the traveling permission, including online application.
-Online application
The applicants can complete the necessary documents and submit them online at office or
at home via internet.
Source: Ministry of Land, Infrastructure, and Transport
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 Case 3 - Automated Monitoring System for Over-sized/Over-weight Vehicles
To control the traffic of vehicles with specifications exceeding the legislative limits, an automated
device has been installed on a trial basis. This device measures the axle load, height, width, and
length of passing vehicles, without stopping them.
A device called an “Automated Measuring System for Over-sized/Overweight Vehicles” was
implemented in November 1997 on the Route 43 of National Highway, Hyogo Prefecture. This device
operates 24 hours a day to measure the specifications (axle load, weight, length, width, and height)
and the number plates of passing vehicles with specifications exceeding the legislative limits. It also
gives a warning through the information display to the drivers of vehicles with axle loads considerably
exceeding the limit.
Information display
Data transmitter
<Result>
Displaying warnings for violators from September 1998 did
bring about a certain degree of desirable effects on traffic
control of large vehicles (The following graph shows the result
in Oishi of the Nada district on the Route 43.).
Registration number reader
Vehicle length/width detector
Vehicle height detector
Vehicle weight detector
Source: Website of Road Bureau, Ministry of Land, Infrastructure, and Transport
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(4) Environmental Management
 Reduction of HGVs’ Burden on Environment (Measure # 1)
In order to improve air quality, vehicles that fail to fulfill the NOx and PM emission standards are
prohibited from traveling in the three major metropolitan areas.
To encourage the replacement of such vehicles with the vehicle that meet the emission standards,
these local governments provide partial financial support for purchasing new vehicles.
National level: The Automobile NOx & PM Control Law
Local level: The Diesel Vehicle Regulations
Vehicles failing to fulfill the NOx and PM emission
standards are prohibited to be registered within the
major city areas (Tokyo, Aichi, and Osaka) that have
severe air pollution.
Since October 2003, diesel vehicles failing to fulfill the
PM emission standards have been prohibited from
traveling within Tokyo and the three neighboring
prefectures.
Ordinance of Tokyo and the three neighboring
prefectures
Areas subjected to the Automobile NOx / PM Control Law
Targeted areas
Targeted Vehicles
Aichi and Mie areas
Osaka
and Hyogo areas
Tokyo
metropolitan
area
All areas of Tokyo and the three neighboring prefectures
(except islands of Tokyo)
Trucks and buses powered by diesel
(Special purpose vehicles converted such trucks and
buses are also included.)
Period
For 7 years from the first registration
Penalty
Fine up to 500,000 Japanese Yen
1. Financial support for the purchase of vehicles powered
by natural gas, LG, gasoline, or diesel fuel is provided.
2. The local government designates a
device for lowering PM emissions to the
level determined.
Stickers of evidence are provided to the
vehicles with such devices.
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 Reduction of HGVs’ Burden on Environment (Measure # 2)
- Environmental Road Pricing
Environmental road pricing has been implemented in Tokyo and Osaka costal areas. The toll rate for the route
passing through the coastal area is lower than the toll rate for the route passing through the inland.
Environmental road pricing intends to divert the HGVs from inner cities, to coastal areas with fewer residents,
therefore reducing the environmental burden on inner city areas.
The Metropolitan Expressway
“Environmental road pricing” is aimed at diverting
traffic concentrated in residential areas of inner cities
to coastal areas by applying price differentiation
between neighboring toll roads.
Price
Price A
A
Residential
Residential areas
areas
Diversion
Diversion
Price
Price B
B
Tokyo
Yokohama
Price
Price A
A >> Price
Price B
B
Coastal
Coastal areas
areas
Regular toll price 1200 yen
Reduced toll price 950 yen
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