美国交通运输部（USDOT）：运输产业基础的供应链评估：货运与物流 EO

SupplyChainAssessmentofthe

TransportationIndustrialBase:

FreightandLogistics

February2022

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U.S.DepartmentofTransportation

TableofContents

ListofFigures iii

ListofTables iii

Acronyms v

ForewordfromtheSecretary vii

ExecutiveSummary x

BuildingResilientSupplyChainstoAddressDisruptions x

i

RespondingtoCurrentSupplyChainDisruptions x

ii

RolesoftheFederalGovernmentandItsPartners x

iv

RecommendationsforResilientSupplyChains x

v

1.0Introduction 1

1.1Purpose

2

1.2Background

3

1.3FreightandLogisticsSystemResilience

6

1.4FederalRoleinFreightandSupplyChains

8

2.0FreightandLogisticsTrends 10

2.1GlobalizationofSupplyChainsandGrowingInternationalTrade 1

1

2.2OverallGrowthinFreightDemand 1

4

2.3IncreasedE-CommerceandDirect-to-ConsumerLogistics 1

6

2.4ChangingWorkforcesandTechnology 1

7

2.5IncreasedDisruptionCausedbyClimateChange 1

8

2.6PublicDisinvestmentinInfrastructure 1

9

2.7IndustryConsolidation 2

1

3.0ChallengesinSupplyChainResilience 24

3.1PhysicalInfrastructure 2

4

3.2Congestion 2

8

3.3DataAvailabilityandKnowledgeGaps 3

2

3.4SupplyChainSecurity 34

i

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3.5Last-MileFreightDelivery 3

6

3.6ChassisAvailability 3

8

3.7ContainerAvailability 4

0

3.8Warehousing 4

2

3.9FreightandLogisticsWorkforce 4

4

3.10RegulationsandUnfairBusinessPractices 4

7

4.0EnsuringResilienceinOurNation’sSupplyChains:PolicyResponses 49

TheAdministration’sApproachtoSupplyChainDisruptions 5

0

TheRolesoftheFederalGovernmentandItsPartners 5

0

RecommendationsforResilientSupplyChains 5

2

4.1InfrastructureInvestment 5

4

4.2PlanningandTechnicalAssistance 6

4

4.3ResearchandData 7

6

4.4RulesandRegulations 8

5

4.5CoordinationandPartnerships 9

1

Endnotes 95

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ListofFigures

FigureES-1:PropertiesofaResilientSystem xii

Figure1:TheRoleofFreightandLogisticsinSupplyChains 3

Figure2:PropertiesofaResilientSystem 7

Figure3:FreightFlowsbyHighway,Railroad,andWaterway,2017 12

Figure4:TopAirCargoAirportsbyWeightofCargo,2018 13

Figure5:ValueofU.S.MonthlyImportedGoods,2010-2021 14

Figure6:ProjectedU.S.FreightGrowthbyMode,2020-2045 15

Figure7:QuarterlyE-CommerceRetailSales 16

Figure8:TransportationInfrastructure:SourcesofNondefenseNominalInvestmentandasaPercent

ofGrossDomesticProduct,1962to2017 19

Figure9:RailIndustryConsolidationHasAllowedRailroadstoIncreaseRatesDramaticallyMore

thanInflationandTrucking(BasedonCentsperRevenueTon-Mile2002-2019) 23

Figure10:AirportsVulnerabletoStormSurge 26

Figure11:ExamplesofMajorHighwayFreightBottlenecksbyNumberbyTruckHoursofDelay

perMile 29

Figure12:ContainerShipsAwaitingBerthsatallU.S.Ports,July2021–February2022 30

Figure13:TruckTransportationEmployees 45

Figure14:WarehousingandStorageEmployees 45

Figure15:JobOpeningsandLaborTurnover:Transportation,Warehousing,andUtilitiesSector

(SeasonallyAdjusted) 46

ListofTables

TableES-1:FederalRoleinAddressingSupplyChainDisruptions:PolicyRolesandGoals xv

TableES-2:RecommendationImplementation:Impact xvi

TableES-3:RecommendationImplementation:Cost xvi

TableES-4:RecommendationImplementation:LevelofComplexity xvii

TableES-5:InfrastructureInvestmentPolicyRecommendations xvii

TableES-6:PlanningandTechnicalAssistancePolicyRecommendations xx

TableES-7:ResearchandDataPolicyRecommendations xxv

TableES-8:RuleandRegulationsPolicyRecommendations xxix

TableES-9:CoordinationandPartnershipsRecommendations xxxiii

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Table1:ExamplesofTransportationSystemDisruptionswithFreightMovementImplications 4

Table2:FederalRoleinAddressingSupplyChainDisruptions:PolicyRolesandGoals 51

Table3:RecommendationImplementation:Impact 52

Table4:RecommendationImplementation:Cost 53

Table5:RecommendationImplementation:LevelofComplexity 53

Table6:InfrastructureInvestmentPolicyRecommendations 54

Table7:PlanningandTechnicalAssistancePolicyRecommendations 64

Table8:ResearchandDataPolicyRecommendations 76

Table9:RulesandRegulationsPolicyRecommendations 85

Table10:CoordinationandPartnershipsPolicyRecommendations 91

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Acronyms

AAR

AssociationofAmericanRailroads

ACSCC

AdvisoryCommitteeonSupplyChainCompetitiveness

ARTBA

AmericanRoad&TransportationBuildersAssociation

ASCE

AmericanSocietyofCivilEngineers

ASCENT

CenterofExcellenceforAlternativeJetFuelsandEnvironment

BCO

BeneficialCargoOwners

BIL

BipartisanInfrastructureLaw

BLS

BureauofLaborStatistics

BTS

BureauofTransportationStatistics

CBO

CongressionalBudgetOffice

CBP

CustomsandBorderProtection

CDL

CommercialDriver’sLicense

CFS

CommodityFlowSurvey

CISA

CybersecurityandInfrastructureSecurityAgency

CLEEN

ContinuousLowerEnergy,EmissionsandNoiseProgram

COVID-19

CoronavirusDisease2019

CPIU

ConsumerPriceIndexforAllUrbanConsumers

CRISI

ConsolidatedRailInfrastructureandSafetyImprovementsGrants

DHS

UnitedStatesDepartmentofHomelandSecurity

DOC

UnitedStatesDepartmentofCommerce

DOD

UnitedStatesDepartmentofDefense

DOE

UnitedStatesDepartmentofEnergy

DOL

UnitedStatesDepartmentofLabor

ED

UnitedStatesDepartmentofEducation

EIA

EnergyInformationAgency

EPA

EnvironmentalProtectionAgency

ES

ExecutiveSummary

FAA

FederalAviationAdministration

FAC

FreightAdvisoryCommittee

FAF

FreightAnalysisFramework

FAR

FederalAcquisitionRegulations

FHWA

FederalHighwayAdministration

FMC

FederalMaritimeCommission

FMCSA

FederalMotorCarrierSafetyAdministration

FRA

FederalRailroadAdministration

FRED

FederalReserveEconomicData

GAO

GovernmentAccountabilityOffice

GDP

GrossDomesticProduct

GHG

GreenhouseGases

GNSS

GlobalNavigationSatelliteSystem

GPS

GlobalPositioningSystem

HME

HazardousMaterialsEndorsement

HPMS

HighwayPerformanceMonitoringSystem

IEP

IntermodalEquipmentProviders

INFRA

InfrastructureforRebuildingAmericaGrantProgram

IoT

InternetofThings

ITS

IntelligentTransportationSystems

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MARAD

UnitedStatesMaritimeAdministration

MIAO

WhiteHouseMadeinAmericaOffice

MPO

MetropolitanPlanningOrganization

MTO

MarineTerminalOperator

NBI

NationalBridgeInventory

NEPA

NationalEnvironmentalPolicyAct

NFSP

NationalFreightStrategicPlan

NGA

NationalGeospatial-IntelligenceAgency

NHFN

NationalHighwayFreightNetwork

NHFP

NationalHighwayFreightProgram

NHI

NationalHighwayInstitute

NHPN

NationalHighwayPerformanceNetwork

NHS

NationalHighwaySystem

NMCFRP

NationalMultimodalCooperativeFreightResearchProgram

NOAA

NationalOceanicandAtmosphericAdministration

OMB

OfficeofManagementandBudget

OPM

OfficeofPersonnelManagement

PHMSA

PipelineandHazardousMaterialsSafetyAdministration

PCS

PortCommunitySystems

PIDP

PortInfrastructureDevelopmentProgramGrants

PNT

Position,Navigation,andTiming

PTC

PositiveTrainControl

PTP

PortTruckPass

RAISE

RebuildingAmericanInfrastructurewithSustainabilityandEquityGrantProgram

RFI

RequestforInformation

RFID

RadioFrequencyIdentification

SAF

SustainableAviationFuel

STB

SurfaceTransportationBoard

TEU

20-FootEquivalentUnits

TSA

TransportationSecurityAdministration

TSMO

TransportationSystemManagementandOperations

TWIC

TransportationWorkerIdentificationCredential

ULCV

UltraLargeContainerVessels

USACE

UnitedStatesArmyCorpofEngineers

USCG

UnitedStatesCoastGuard

USDA

UnitedStatesDepartmentofAgriculture

USDOT

UnitedStatesDepartmentofTransportation

USTR

UnitedStatesTradeRepresentative

VA

UnitedStatesDepartmentofVeteransAffairs

VIUS

VehicleInventoryandUseSurvey

viiSupplyChainAssessmentoftheTransportationIndustrialBase:FreightandLogistics

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Forewordfrom

theSecretary

Overthepastyear,everyAmericanhasfelt,inonewayoranother,theimpactoftheongoingstrainonournationalsupplychains.AlthoughtheCOVID-19pandemicacceleratedtheproblem,inmanyways,thesupplychainissueswearefacingtodayhavebeendecadesinthemaking.

Aconfluenceofshort-termshocksandlong-termstresseshaveputoursupplychainstothetest.Decadesofunderinvestmentinourtransportationinfrastructurehaveforcedustomoveanunprecedentedvolumeofgoodsoninfrastructurethatwasnotbuilttohandleit.Nearlyahalfcenturyofderegulationandconsolidationhas,incertainsectors,ledtoworseservice,highercosts,andpoorerworkingconditions.Theriseofe-commercehaschangedourlivesforthebetter,buttherealityisthatourfreightsystemwasnotbuiltforaworldwhereanyonecanorderanythingtobedeliveredtotheirdoorwithacoupleoftapsontheirphone.Theclimatecrisishascauseddisruptionsanddelaysworldwide.Andofcourse,thepandemiccontinuestocauseoutagesallovertheworld.

Atthesametime,thankstothehistoricsuccessoftheAmericanRescuePlanandotherAdministrationactions,oureconomysawmorethan6millionjobscreatedlastyear—thefastestgrowthsincethe1980s.Thisrecoveryhasalsoledtounprecedentedconsumerdemand,whichmeantpeoplehavefacedhigherpricesandlongerdelaysasoursupplychainsstruggledtokeepup.

Despitethesechallenges,ourcountryis,infact,movingmoregoodsthanwehaveeverseen,thankstotheessentialworkerswhokeepoursupplychainsrunningeveryday:thelongshoreworkers,truckdrivers,railroadoperators,retailandwarehouseworkers,pilots,andmore.Weowetheseworkersadebtofgratitude,aswellasacommitmenttostrengtheningthesupplychaininfrastructuretheirjobsdependon,improvingworkingconditions,andsupportingtheirchancetojoinaunion.

InAmerica,mostofthelinksinoursupplychainsfallunderthepurviewoftheprivatesector—andrightlyso.Butgovernmentstillhasanimportantroletoplay,bothinactingasanhonestbrokertocoordinateeffortstoalleviatetheshort-termdisruptionstooursupplychains,andinrepairingthepublicinfrastructurethatholdseverylinkinthatchaintogether.

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That’swhytheSupplyChainDisruptionsTaskForce—whichIco-chairtogetherwithSecretaryRaimondoandSecretaryVilsack—isusingeverytoolatthegovernment’sdisposaltoaddressthesepresent-termdisruptions.Already,theTaskForcehasmovedourportstoward24/7operations,reducedlong-dwellingcontainerssittingonthedocks,convenedstakeholderstodiscusshowtostrengthenthetruckingworkforce,andworkedtoincreasefreightrailservice.

Forthelong-term,wearethankfulforthehistoricinvestmentsinPresidentBiden’sBipartisanInfrastructureLaw(BIL),whichprovideaonce-in-a-generationopportunitytomodernizethecritical,butoutdated,infrastructureoursupplychainsdependoneveryday.TheBILmakesthelargestsingleFederalinvestmentinourportsinAmericanhistory,ontopofnewfundsforairports,freightrail,andothercriticalsupplychaininfrastructure,whichwillcreatejobsandstrengthenoureconomy.

Lookingtothefuture,todrivedownpricesandstrengthenoureconomy,weneedtobringbackmanufacturingjobstotheUnitedStates.ThatmeansweneedmoreofoursupplyandproductioncapacityhereintheUnitedStates,ratherthanoutsourcedabroad.

Tostrengthenoureconomyandbuildmorehereathome,weneedtotakeanintegratedviewthatrecognizestheinextricablelinksbetweenourtransportationandlogisticssupplychains,ourabilitytoproducegoodsdomestically,andtheinvestmentswemakeinourinfrastructure.ThisreportoffersacomprehensivestrategytodojustthatbyinvestinginAmericatodrivedemandforAmerican-madegoodsandjobs.

TheAdministration’sforesightincallingforthisreportayearagoisareflectionofourcommitmenttoaddressingthesedisruptions.Andtherecommendationsinthisreportformacrucialroadmaptohelpprioritizeourinvestmentdecisionsasweworktoimplementthehistoricinfrastructurelaw.

Thisreport,whichreflectsfeedbackfrommorethan400industry,labor,andotherstakeholders,identifieskeypolicyrecommendationsacrossfiveareas:infrastructureinvestment,planningandtechnicalassistance,researchanddata,rulesandregulations,andcoordinationandpartnerships.Thesepolicyrecommendationsaremeantnotonlytoaddressthecurrentdisruptions,buttohelpusplanforthefutureandaredesignedtostandthetestoftime,bybuildingmodernsupplychainsthatcanwithstandfuturedisruptions,strengthenoureconomy,andkeepgoodsmoving―affordably―toAmericanfamilies.

Thisisnotapartisanissue;weallbenefitfromhavingfoodonthetableandgoodsontheshelves.Andweallplayaroleinimprovingoursupplychains.Solvingtheseissuesrequiresawiderangeofpublicandprivatesectorpartners.AmericanswilldependonCongressionalactiontoupdateourlawsandprovidefundingforneededinvestments,likethoseauthorizedintheBipartisanInfrastructureLaw.Federal,State,andlocalagenciesmustdesignandimplementnewpoliciesandprograms.Andprivate

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companiesandorganizedlabormustworktogethertofindfairsolutionsandensuregoodsmakeitthrougheachlinkinoursupplychaintoreachtheplaceswheretheyareneededmost.

Thechallengesbeforeusarehistoric,buttheyarematchedbyanequallyhistoricopportunity.Throughourcombinedefforts,wecanbuildbetter,moreefficient,moreresilientsupplychainsthatsecureAmerica’seconomicfutureandensureeveryAmericansharesinthebenefits.

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ExecutiveSummary

Ournationaleconomicstrengthandqualityoflifedependonthesafeandefficientmovementofgoodsthroughoutournation’sbordersandbeyond.Supplychains—theinterconnectedwebsofbusinesses,workers,infrastructureprocesses,andpracticesthatunderliethesourcing,manufacturing,transportation,andsaleofgoods—arevitaltooureverydaylives.Inthepasttheyhavebeeninvisibletoconsumers,butthepandemicanditsconsequenceshavemadecleartheirvitalimportancetoourdailylives,livelihoods,andbasicday-to-dayconvenienceandwell-being.

Toperformwell,supplychainsrequiresuccessintransportation,inproduction,andinsourcing.Americanspaylowerpricesandfacefewerdisruptionswhengoodsmoveefficientlyandreliablyandbusinessesandconsumershavepredictableaccesstogoodsandmaterials.Americansbenefitwhenwebringmanufacturingjobs,production,andsourcingtotheUnitedStatesratherthanoutsourcingthemabroad.Onshoringcandrivedownprices,addresilience,andletAmericaowntheindustriesofthefuture.Whensupplychainsaredisruptedbyeventssuchaspublichealthcrises,extremeweather,workforcechallenges,orcyberattacks,goodsaredelayed,costsincrease,andAmericans’dailylivesareaffected.Whilethesedisruptionscannotbeavoidedaltogether,wecanbuildsupplychainsthatnimblyandeffectivelyrespondtominimizeinterruptionsandkeepgoodsmovingunderallconditions.

TheAdministrationhastakenaggressiveactiontorespondtosupplychaindisruptionsstemmingfromthecurrentpandemic.Butevenbeforethesedisruptionsworsenedoverthecourseofthepastyear,thePresidentissuedExecutiveOrder14017

1

callingforareviewofthetransportationandlogisticsindustrialbase.Theserecommendationsaremeantnotonlytorespondtothecurrentdisruptions,buttostandthetestoftimebybuildingsupplychainsresilienttofuturedisruptions,inwhateverformtheytake.

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BuildingResilientSupplyChainsto

AddressDisruptions

WhiletheCOVID-19pandemichashighlightedandintensifiedchallengesinglobalsupplychains,thisisnotanewphenomenon.America’ssupplychainshavefacedmountingchallengesforseveraldecades,including:

•Growingfreightdemand.

•Changingconsumerpreferences,includingdemandforrapiddelivery.

•Attracting,training,andretainingaqualifiedworkforce.

•Increasinglycomplex,globalsupplychainswheremanyproductsaremanufacturedabroad.

•Risingfrequencyofdisruptioncausedbyclimatechange.

•Adaptingtonewtechnologywhilemaintainingsecurity.

Overthepasttwoyears,thepandemichascompoundedtheseissuesandcausedtemporaryportclosures,workerandequipmentshortages,increasedlevelsofcongestionanddelay,andledtofluctuatingprices.SignificantprogresshasbeenmadetoaddressthedisruptiveeffectsoftheCOVID-19pandemic,butmanychallengesremain.Toguardagainsttheimpactsoffuturedisruptionsoverthelongterm,wemustenhanceournation’ssupplychainresilience.

Resiliencereferstotheabilityofasystemtoadapttochangingconditionsaswellaswithstandandrapidlyrecoverfromdisruption(seeFigureES-1).BuildingtheresilienceofsupplychainsrequiresFederalleadershiptocoordinateeffortsacrossawiderangeoffreightandlogisticsstakeholders.Astheseeffortsprogress,wemustalsorecognizethatmoreresilientsupplychainsshouldrecognizeandmitigatelong-standingpollutionandeconomicissuesthatnegativelyimpactcommunitiesofcolor,low-income,andindigenouscommunities.Theworkforceonwhicharesilientsupplychainisbuiltisdrawnheavilyfromthesevulnerablecommunities.

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FigureES-1:PropertiesofaResilientSystem

PropertiesofResilientSystems

Resilientsystemsexhibitseveralkeyproperties.Theyhaveaccesstodiversecomponents(e.g.,materials,suppliers,carriers,androutes)thatprovideredundancyincaseonecomponentinthesystemfails.Theyarealsohighlyconnectedyetsecure,flexible,andadaptivetoenableeasytransitionsfromonecomponenttoanotherwhenneeded.Finally,theyarecapableofbeingquicklyrepairedorrestoredtolimitthedurationofanyonedisruption.

Source:USDOTJohnA.VolpeNationalTransportationSystemsCenter,

(nodate).

RespondingtoCurrentSupply

ChainDisruptions

TheU.S.DepartmentofTransportation(USDOT)developedthisFreightandLogisticsSupplyChainAssessmentinresponsetoExecutiveOrder14017:America’sSupplyChains.TheBiden-HarrisAdministrationidentifiedthattheCOVID-19pandemicwasputtingAmerica’ssupplychainstothetestandissuedthisExecutiveOrderinFebruary2021tobetterunderstandthisimportantissueanddevelopacoordinatedFederalresponse.

TheAdministrationhasactivelycoordinatedwithprivateindustryandStateandlocalgovernmenttounderstandon-the-groundconditionsanddeterminehowbesttoemployFederalGovernmentpolicyleverstoaddressdisruptions.TheAdministrationcreatedaSupplyChainDisruptionsTaskForceconveningkeystakeholdersrepresentingports,labor,thetruckingindustry,andaffectedbusinesses,andassignedaSpecialPortsEnvoytohelpadvanceshort-termactions.Inrecentmonths,Federalleadershiphasresultedinsignificantimprovements,including:

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•AchievingcommitmentsfromthePortsofLosAngelesandLongBeach—whichhandle

40percentofourcountry’scontainerizedimports—labor,andourlargestretailerstomovetowarda24/7supplychainsystemtounlockbottlenecks.

•Reducingthenumberoflong-dwellingcontainersatthePortsofLosAngelesandLongBeachby65percentthroughanewfeeonoceancarriersleavingimportcontainersattheportsfortoolong.

•WorkingwiththeGeorgiaPortsAuthoritytoaddresscongestionatthePortofSavannahthrougha$7millioninvestmentin“pop-up”inlandportsthathelprelievecapacityinSavannahandhaveledtodecreasesincontainerdwelltimesandthenumberofshipsatanchoroutsidetheport.

•WorkingwiththeU.S.DepartmentofAgriculture(USDA)andthePortofOaklandtoinvestinpop-upcontaineryardstohelpreducecongestioncausedbyemptycontainersandmakeiteasierforagriculturalexporterstoutilizetheempties.

•LaunchingaTruckingActionPlantobothrecruitmoretruckdriversandimprovethequalityofexistingjobstoretainmoredriversintheprofession.ThisincludespartneringwiththeDepartmentofLabor(DOL)onaRegisteredApprenticeshipProgram,apilotprogramfortruckdriversbetweentheagesof18