[Federal Register Volume 60, Number 48 (Monday, March 13, 1995)]
[Notices]
[Pages 13504-13510]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: X95-50313]



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DEPARTMENT OF TRANSPORTATION
[FHWA Docket No. 95-4]


Highway Investment Needs at and Approaching International Ports 
of Entry

AGENCY: Federal Highway Administration (FHWA), DOT.

ACTION: Notice; request for comments.

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SUMMARY: This document requests comments on a study of highway 
investment needs at and approaching international ports of entry. This 
study would supplement an earlier report on international ports of 
entry and transportation corridors for North American trade which the 
Department of Transportation (DOT) submitted to the Congress in January 
1994, in accordance with sections 1089 and 6015 of the Intermodal 
Surface Transportation Efficiency Act of 1991 (ISTEA), Pub. L. 102-240, 
105 Stat. 1914. The Congress has asked the FHWA to conduct a study to 
review its distribution of funds to border regions, to develop and 
report recommendations to improve the distributions of such funds, to 
give high priority to the transportation needs of border regions, and 
to work with State and local governments in border regions (including 
requests for information about funding distribution) to assist them 
with planning. This will be a two-part study. The States have asked for 
the expansion of this study to include other international ports of 
entry. This will be the second study conducted by the FHWA.

DATES: Comments must be received on or before April 1, 1995, for 
inclusion in part one of the report to the Congress on international 
border crossing ports of entry; on or before July 31, 1995, for the 
second part of the border crossing report; and by September 1, 1995, 
for a subsequent report which will cover other maritime, rail, air, and 
intermodal international ports of entry. This docket will remain open 
indefinitely to accept comments on the reports after they are issued.

ADDRESSES: Submit written, signed comments to the FHWA Docket No. 95-4, 
Federal Highway Administration, Room 4232, HCC-10, Office of the Chief 
Counsel, 400 Seventh Street, SW., Washington DC 20590. Interested 
parties are requested to identify themselves for inclusion on a mailing 
list for future notifications concerning the study by providing their 
names and mailing addresses to the above docket. All comments received 
will be available for examination at the above address between 8:30 
a.m. and 3:30 p.m., e.t., Monday through Friday, except Federal 
holidays. Those desiring notification of receipt of comments must 
include a self-addressed, stamped envelope or postcard.

FOR FURTHER INFORMATION CONTACT: Ms. Esther Strawder, Office of Policy 
Development, Federal Highway Administration (HPP-22), 400 Seventh 
Street, SW., Washington, D.C. 20590, Attention: Highway Investment 
Study (telephone 202/366-6949, fax 202/366-3297).

SUPPLEMENTARY INFORMATION:

Background

    The conference report (H.R. Conf. Rep. No. 752, 103d Cong., 2d 
Sess. (1994)) of the Department of Transportation's Appropriations Act 
for Fiscal Year 1995 (Pub. L. 103-331, 108 Stat. 2471) includes a 
discussion of and requirements related to infrastructure issues of the 
border regions.
    The congressional report references an earlier report prepared by 
the FHWA and submitted by the Secretary of Transportation to the 
Congress in January 1994, in accordance with section 1089, Feasibility 
of International Border Highway Infrastructure Discretionary Program, 
and section 6015, Border Crossings, of the ISTEA. The report is 
entitled ``Assessment of Border Crossings and Transportation 
[[Page 13505]] Corridors for North American Trade.'' A copy of the 
Executive Summary of the Report follows as background. A list of the 
detailed reports which resulted from that study and are available from 
the National Technical Information Service is also included.
    In the conference report, Congress has asked the FHWA to review its 
distribution of funds to border regions, including reexamination of a 
dedicated border infrastructure investment program; to develop and 
report recommendations to improve the distribution of such funds; to 
give high priority to the transportation needs of border regions, and 
to work with State and local governments in border regions, including 
requests for information about funding distribution, to assist them 
with planning. The House Appropriations Committee requested the 
recommendations to improve the distribution of the funds by May 1, 
1995. A draft of that report is expected to be completed by March 1, 
1995. A second phase addressing broader issues and including 
international ports of entry will be completed by the end of calendar 
year 1995.
    Through the American Association of Highway and Transportation 
Officials Planning Committee, the States will be working with the FHWA 
to develop the data to address these congressional concerns for the 
land border crossing and the highway infrastructure investment issues 
associated with all international ports of entry. Comments must be 
received on or before April 1, 1995, for inclusion in part one of the 
report to the Congress on international border crossing ports of entry; 
on or before July 31, 1995, for the second part of the border crossing 
report; and by September 1, 1995, for a subsequent report which will 
cover other maritime, rail, air, and intermodal international ports of 
entry. This docket will remain open indefinitely to accept comments on 
the reports after they are issued.

Policy Questions and Comments

    Responses to the following questions are solicited from any parties 
interested in highway infrastructure issues associated with border 
crossings and other international ports of entry. The following key 
policy questions will be considered:
    1. What are the current priority highway investments at or in the 
vicinity of land border crossings or other international ports of 
entry?
    2. What factors define a high priority highway investment at or in 
the vicinity of land border crossings or other international ports of 
entry?
    3. Historically, how have Federal funds been distributed to the 
border regions?
    4. (a) If there were no dedicated highway infrastructure investment 
program for roads associated with international ports of entry and the 
State and local governments made decisions through their usual planning 
processes, what could be done to assure that each State's 
transportation plan included consideration of highway or other access 
to the international ports of entry? (b) If there were a dedicated 
infrastructure investment program for highways associated with 
international ports of entry, how should it be structured for highways 
and for other surface transportation modes?
    5. Comment on the following proposed criteria for defining roadway 
segments that provide access to or egress from international ports of 
entry. These roadway segments are often referred to as being ``at and/
or approaching the international ports of entry.'' The criteria are 
intended to provide uniformity in the data used in analysis and in 
developing highway investment strategies. The criteria described are 
for international ports of entry for which the U.S. Customs Service has 
listed a valid Automated Commercial System District/Port Code. These 
ports of entry may be for land (highway and rail), water, or air.
Proposed Criteria
    To be considered as a highway segment providing access to or egress 
from an international port of entry one of the following three criteria 
must apply:
    1. The roadway segment from the international port of entry to its 
intersection with the first principal arterial.
    2. The roadway segment(s) on which half of the traffic is destined 
for or is coming from the international port of entry.
    3. The roadway segment(s) carrying more than half of the traffic 
that crossed or entered at the international port of entry.

    Authority: Secs. 1089 and 6015, Pub. L. 102-240, 105 Stat. 1914 
(1991); 23 U.S.C. 315; 49 CFR 1.48.

    Issued on: March 7, 1995.
Rodney E. Slater,
Federal Highway Administrator.

Assessment of Border Crossings and Transportation Corridors for North 
American Trade--Executive Summary of Report to Congress Pursuant to 
Intermodal Surface Transportation Efficiency Act of 1991--Public Law 
102-240, Sections 1089 and 6015

Authority

Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA), 
Public Law 102-240

ISTEA Section 1089: Feasibility of International Border Highway 
Infrastructure Discretionary Program

    (a) The Secretary shall conduct a study of the advisability and 
feasibility of establishing an international border highway 
infrastructure discretionary program. The purpose of such a program 
would be to enable States and Federal agencies to construct, 
replace, and rehabilitate highway infrastructure facilities at 
international borders when such States, agencies, and the Secretary 
find that an international bridge or a reasonable segment of a major 
highway providing access to such a bridge
    (1) is important;
    (2) is unsafe because of structural deficiencies, physical 
deterioration, or functional obsolescence;
    (3) poses a safety hazard to highway users;
    (4) by its construction, replacement, or rehabilitation, would 
minimize disruptions, delays, and costs to users; or
    (5) by its construction, replacement, or rehabilitation, would 
provide more efficient routes for international trade and commerce.
    (b) Report.--Not later than September 30, 1993, the Secretary 
shall transmit to Congress a report on the results of the study 
conducted under this section, together with any recommendations to 
the Secretary.

ISTEA Section 6015. Border Crossings

    (a) Identification.--The Secretary, in cooperation with other 
appropriate Federal agencies, shall identify existing and emerging 
trade corridors and transportation subsystems that facilitate trade 
between the United States, Canada, and Mexico.
    (b) Priorities and Recommendations.--The Secretary shall 
investigate and develop priorities and recommendations for rail, 
highway, water, and air freight centers and all highway border 
crossings for States adjoining Canada and Mexico, including the Gulf 
of Mexico States and other States whose transportation subsystems 
affect the trade corridors. The recommendations shall provide for 
improvement and integration of transportation corridor subsystems, 
methods for achieving the optimum yield from such subsystems, 
methods for increasing productivity, methods for increasing the use 
of advanced technologies, and methods to encourage the use of 
innovative marketing techniques, such as just-in-time deliveries.
    (c) Minimum Elements.--The highway border crossing assessment 
under this section shall at a minimum--
    (1) determine whether or not the border crossings are in 
compliance with current [[Page 13506]] Federal highway regulations 
and adequately designed for future growth and expansion;
    (2) assess their ability to accommodate increased commerce due 
to the United States-Canada Free Trade Agreement and increased trade 
between the United States and Mexico; and
    (3) assess their ability to accommodate increasing tourism-
related traffic between the United States, Canada, and Mexico.
    The review shall specifically address issues related to the 
alignment of United States and adjoining Canadian and Mexican 
highways at the border crossings, the development of bicycle paths 
and pedestrian walkways, and potential energy savings to be realized 
by decreasing truck delays at the border crossings and related 
parking improvements.
    (d) Consultation.--In carrying out this section, the Secretary 
shall consult with appropriate Governors and representatives of the 
Republic of Mexico and Canada.
    (e) Report.--Not later than 18 months after the date of the 
enactment of this Act, the Secretary shall report to Congress and 
border State Governors on transportation infrastructure needs, 
associated costs, and economic impacts identified and propose an 
agenda to develop systemwide integration of services for national 
benefits.

Assessment of Border Crossings and Transportation Corridors for North 
American Trade--ISTEA Section 1089 and Section 6015 Report to Congress

Executive Summary

Congressional Mandate

    The Intermodal Surface Transportation Efficiency Act (ISTEA) of 
1991, Public Law 102-240, directs the Secretary of Transportation to 
conduct two studies relating to the movement of international trade.
    Section 1089 calls for a study of the ``advisability and 
feasibility of an international border highway infrastructure 
discretionary program.''
    Section 6015 calls for the Department of Transportation 
(Department) to conduct an assessment of existing and emerging 
international trade corridors between the United States, Mexico, and 
Canada, and to make recommendations on how to improve the integration 
and operation of trade-related transportation subsystems. Section 6015 
requires that Mexico and Canada be consulted; both countries have 
cooperated in the study effort.
    While the Congressional mandate does not specifically mention the 
North American Free Trade Agreement (NAFTA), Section 6015 stipulates 
that the ``review shall specifically address issues related to the 
alignment of United States and adjoining Canadian and Mexican highways 
at the border crossings.'' The legislation also requires an assessment 
of the ability of highway border crossings to ``accommodate increased 
commerce due to the United States-Canada Free Trade Agreement and 
increased trade between the United States and Mexico.''
    Much of the motivation for the study stems from long standing 
complaints of lengthy delays and backups of trucks and cars at 
international border crossings. There is a concern that trade among the 
three North American nations, which has increased significantly over 
the past seven years, may outstrip the ability of the nations' 
transportation systems to handle additional traffic, further 
exacerbating border congestion. The study team concluded that there are 
several factors involved in border congestion, and a number of 
difficulties in assessing the condition and future of trade corridors.

Study Approach and Methodology

    The study team examined the border crossings and the access 
channels leading to them. The team visited most of crossings on both 
the northern and southern borders and drove over and observed traffic 
on many of the access roads. With assistance from the U.S. Customs, the 
team observed cargo and passenger clearance operations and 
transportation operations at the border crossings.
    In addition, the team conducted a series of public outreach and 
information gathering meetings at locations throughout the United 
States. Participants at these meetings included shippers, carriers, 
customs brokers, and officials from concerned Federal, state, 
provincial, and local governments. Much of the information gathered in 
these sessions was anecdotal in nature, and reflective of local 
perspectives. However, there was value in learning the views of border 
communities and understanding the effects they perceive their proximity 
to heavily travelled border crossings have on local and regional 
transportation systems. Following completion of these studies and at 
the invitation of the Federal governments of Canada and Mexico, 
meetings were also held in Canada and Mexico to gain the perspectives 
of interested parties in those countries. Results of these meetings 
will be reported separately.
    Statistical data on cross-border trade gathered from sources in all 
three countries were also used to the extent possible in assessing 
trade patterns and conditions at the borders. The statistical data, 
however, suffer from a number of shortcomings. The U.S. Census Bureau, 
for example, has not historically classified cross-border transits by 
mode of transportation. Ideally, transportation statistics are compiled 
in terms of ton miles or numbers of vehicles, but data were not readily 
available in that form. Furthermore, the three countries involved do 
not compile data in a standard way.

Current U.S. Trade With Canada and Mexico

    Canada is the United States' largest trading partner. In 1992, 
merchandise trade between the two countries totaled $189 billion, with 
U.S. imports exceeding exports by about 9 percent. Trade between the 
United States and Canada is growing. Between 1985 and 1992, the value 
of U.S.-Canadian trade increased by about $33 billion, or 21 percent. 
Trade with Canada currently accounts for about 20 percent of U.S. total 
merchandise trade with the world.
    Total trade with Mexico has even stronger growth, fueled by 
Mexico's liberalization of tariff and trade restrictions in 1986. From 
1986 through 1992, total trade grew from approximately $30 billion to 
$76 billion, an increase of 153 percent. Mexico is now the United 
States' third largest export market; U.S. exports increased from $12.4 
billion in 1986 to $40.6 billion in 1992.

North American Free Trade Agreement

    The United States, Canada, and Mexico signed the North American 
Free Trade Agreement (NAFTA) on December 17, 1992. The NAFTA will 
create the largest free trade zone in the world, comprising over 360 
million consumers with a combined annual output of $6 trillion. Through 
progressive reductions, the NAFTA eliminates all tariffs on industrial 
and agricultural goods produced by the three countries. Approximately 
50 percent of U.S. exports to Mexico will enter Mexico completely duty-
free on the day the agreement enters into force. Mexican tariffs on all 
remaining industrial products and most agricultural items will be 
phased out over 5 to 10 years. Reductions in tariffs on trade between 
the United States and Canada were negotiated in 1987 and incorporated 
into a U.S.-Canada Free Trade Agreement. This agreement remains in 
effect, augmented by additional changes included in the NAFTA.
    Judging from recent experience, the NAFTA should result in further 
increases in U.S. trade with Mexico. For example, the U.S. Department 
of Commerce estimates that the NAFTA will result in increases in U.S. 
automotive exports to Mexico of up to $1 billion in the NAFTA's first 
year alone due to the lowering of various Mexican tariff and non-tariff 
barriers.
[[Page 13507]]

    The dramatically increased trade with Mexico over the past seven 
years has aggravated conditions at an already congested U.S.-Mexican 
land border. Similar problems exist on the U.S.-Canadian border as 
well. While the NAFTA would help boost trade among the three countries, 
the degree to which it would increase border congestion is unclear. The 
NAFTA will eliminate a number of transportation practices and 
restrictions currently in place that contribute significantly to 
congestion at land border crossings. At some crossings, as many as 20 
percent of commercial vehicles cross empty because of current 
limitations on access in both countries. Thus, while the NAFTA's tariff 
reduction provisions will tend to boost trade and vehicle traffic 
across the southern border, the NAFTA's provisions will also tend to 
reduce the number of empty commercial vehicles crossing the border.
    Both Mexico and the United States restrict access for motor 
carriers from the other country. U.S. trucks are prohibited from 
crossing the border into Mexico, for example, while Mexican trucks are 
permitted in the United States only as far as the commercial zones 
along the border which are designated by the Interstate Commerce 
Commission.
    The NAFTA creates a timetable for the removal of barriers to the 
provision of cross-border motor carrier services, thereby permitting 
international passengers and cargo to be transported more efficiently. 
The NAFTA's transportation provisions will eliminate the need to 
transfer cargoes and trailers at the border, thereby reducing the 
number of trucks that cross the border empty and eliminating a 
significant cause of congestion at border ports of entry.

Patterns of Trade

Canada
    The largest concentration of trade with Canada, both to and from a 
single region of the United States, is in the Great Lakes area, 
including Wisconsin, Michigan, Ohio, Indiana, and Illinois. In 1992, 
this region alone accounted for 39 percent of the value of U.S. imports 
from Canada and 36 percent of the value of U.S. exports. Much of this 
is accounted for by the high value automobile trade focused between 
Michigan and Ontario.
    The second largest regional concentration of trade is in the mid-
Atlantic area, which includes New York, New Jersey, and Pennsylvania. 
The third largest is in the New England states. Together, states in the 
three eastern regions account for 65 percent of Canada's exports to the 
United States and 60 percent of U.S. exports to Canada when measured as 
value of trade.
Mexico
    The largest concentration of trade with Mexico to date has been in 
the southern border region. Texas dominates U.S. export trade with 
Mexico, with over $17 billion in 1992. California is second, followed 
by Arizona, Michigan, and Illinois. The principal destinations in the 
United States for imports from Mexico are Texas, California, and 
Michigan.

Transportation Patterns

    In terms of value, most cargo transported between the United States 
and Canada and the United States and Mexico travels by highway or 
rail--80.2 percent of total U.S.-Canadian trade in 1992; 86 percent of 
total U.S.-Mexican trade in 1992. Between the United States and Canada, 
movements by air account for about 10 percent of cargo transported. 
Between the United States and Mexico, water transportation accounts for 
a 10 percent share of total cargo transported in terms of value.
    On the northern border, the eastern ports of entry in Michigan, New 
York, and New England handle more than 80 percent of cross-border 
traffic. Of the remaining traffic, the Washington ports of entry handle 
about 70 percent of northwestern cross-border trade and highway traffic 
volume. Along the U.S.-Mexico border trade flow is heavily concentrated 
at seven major border ports of entry--El Paso, Otay Mesa, Laredo, 
Brownsville, Calexico, Nogales, and Hidalgo. The busiest port of entry 
for commercial trucks is at El Paso; the busiest port of entry for rail 
traffic is Laredo.

Trade Flow Transportation Patterns

    The report addresses trade flow patterns rather than trade 
corridors for the major areas of North America. The study team did not 
find a firm definition of what constitutes a trade corridor for all 
modes of transportation.
    Most trade flow patterns between the United States and Mexico and 
the United States and Canada can best be described as intraregional in 
nature. The communities on both sides of the northern and southern 
borders have developed regional economies that are truly binational.
    There are high levels of cross-border commuting, shopping, and 
movement of goods and services to support these binational regional 
economies. These movements are best accommodated by regional 
transportation systems.
    In addition, there are trade movements between production regions 
and between production and consumption regions. Often, these areas are 
far apart; occasionally, the trade is between contiguous regions, such 
as between the densely populated manufacturing sections of the eastern 
United States and Canada.
Eastern U.S.-Canadian Trade Flow Transportation Patterns
    Groups of individual land border crossings are called frontiers or 
gateways in this report. The Niagara and Michigan frontiers are at the 
center of the major trade between the United States and Canada. In 
addition, these frontiers account for the largest portion of U.S.-
Mexican trade that does not originate in Texas or California. While the 
largest portion of freight to and from Mexico crosses the Texas border 
at Laredo, it is carried on transportation routes originating in 
Montreal, Toronto, Buffalo, southeast Michigan, and Chicago. These 
routes are critical to an integrated North American market.
Western U.S.-Canadian Trade Flow Transportation Patterns
    The pattern of U.S.-Canadian trade in the west tends to be 
organized into three somewhat distinct cross-border trading subregions: 
the Pacific Northwest, the Rocky Mountains, and the Upper Plains. The 
flow of trade at the border is focused through relatively few major 
crossings. While some dominant interregional flows are associated with 
trade to and from these border gateways, trade flows beyond the border 
are highly diffuse, with as many east-west flows as north-south flows 
to and from the border.
U.S.-Mexican Trade Flow Transportation Patterns
    Three existing and two emerging trade areas, linked to major border 
ports of entry, were identified: South Texas, West Texas, New Mexico, 
Arizona, and California. These are not broad continental corridors in 
the sense that they connect regions of the United States with regions 
in Mexico or regions in Mexico with regions in Canada. Rather, they 
tend to be the funnels through which trade and people pass. Beyond the 
border region, trade flows in a more diffuse pattern. In addition to 
serving as convenient crossing points for binational trade, these areas 
also serve local economies of integrated services, industries, and 
trade. [[Page 13508]] 

Principal Findings

     Volumes of trade and traffic will continue to increase 
among the three North American countries. The traffic growth rate at 
both the U.S.-Canadian and U.S.-Mexican borders has been increasing at 
rates significantly higher than average national growth rates, 
particularly at the southern border.
     Passenger traffic through U.S.-Canadian ports of entry in 
the eastern region is projected to increase at a rate of 6.2 percent a 
year through 1997. Total trade through eastern ports of entry is 
projected to reach $160 billion by 1997, resulting in an increase in 
commercial traffic to between 8 and 9 million vehicles or an average 
annual growth rate of between 5 and 7 percent through 1997.
     U.S.-Canadian trade processed through border ports of 
entry in the western region is also expected to increase. U.S. exports 
to Canada are projected to increase by 16 to 24 percent in the next ten 
years. Canada exports to the United States are projected to increase 24 
to 34 percent over the same period.
     With ratification of the NAFTA, the projected increase in 
trade between the United States and Mexico will be much larger. U.S. 
exports to Mexico are projected to increase between 65 and 70 percent 
by 2000. Mexican exports to the United States through the South Texas 
ports of entry are projected to increase 120 percent; exports through 
the West Texas-New Mexico ports of entry should increase by 110 
percent; exports through Arizona are projected to grow by 85 percent; 
and exports through California are projected to increase by over 200 
percent.
     The facilities immediately at the border crossings, 
principally bridges and tunnels plus facilities housing Federal 
inspection agencies (the U.S. Customs Service, the U.S. Immigration and 
Naturalization Service, the U.S. Department of Agriculture and their 
Mexican and Canadian counterparts), are adequate and will remain so for 
the foreseeable future, even with the anticipated increased in trade. 
The General Services Administration (GSA) is completing a $364.5 
million Southwest Border Capital Improvement Program that will enable 
southern border crossing facilities to accommodate 8.4 million trucks 
annually. Approximately 2.3 million trucks entered the United States 
from Mexico during Fiscal Year 1992.
     Arterials leading to and from border crossing sites are 
part of the border approach infrastructure. Today they are under stress 
and will be hard pressed to handle significantly greater amounts of 
cross-border traffic. The GSA improvements cited above are confined to 
facilities at border crossings which handle traffic and inspection. The 
GSA improvements do not extend beyond the immediate crossing area to 
roads and other transportation channels. These arterials connect border 
crossings to the main interstate and interregional transportation 
system within the United States. They are badly in need of repair and 
upgrading.
     In addition to needed improvements in access to the border 
crossing points, some incremental improvements to transportation 
systems in the United States may be necessary to handle increases in 
both domestic and international trade. These include improvements in 
access to inland ports, seaports, airports, and intermodal transfer 
facilities.
     Communities that adjoin busy international border 
crossings face special problems resulting from the concentration of 
trade-related traffic, including congestion of local arterials with 
accompanying delays in travel times for local residents and 
deterioration of air quality, safety risks associated with heavy 
vehicle traffic, and increased deterioration of highway infrastructure.
     Border states, in distributing Federal highway funds, seem 
not to have allotted sufficient funds to border communities for 
improvements to border crossing approaches. The reason, in some cases, 
is because of competing priorities within states and in other cases 
because of legal limitations prior to ISTEA on the use of such funds 
for access roads to certain crossings (e.g. toll bridges). New sources 
of infrastructure funding and improved methods for its allocation 
appear necessary.
     A significant proportion of the delays at border crossings 
are not due to a lack of adequate infrastructure, but is caused by 
volume of trade, by complexities of inspection requirements, and by 
less than optimal traffic management and cargo clearance procedures. 
The responsibilities of the inspection agencies require that many 
vehicles undergo lengthy, thorough inspections. Inadequate or 
incomplete paperwork accompanying cross-border shipments is common and 
constitutes another source of delay. Improvements appear to be needed 
in a combination of partnerships and technology applications to resolve 
some delay problems.
     Inspection agency staffing shortages can lead to excessive 
waiting time at border crossings. Traffic at most crossings is 
typically concentrated during peak hours, and border facilities often 
are idle for long periods during off-peak hours. More efficient use of 
border facilities could spread traffic over a longer period during the 
day, and thus alleviate some congestion.
     Policies and practices of foreign governments often 
contribute to congestion at the border. For example, inspection 
agencies on both sides of the border work different hours.
     Infrastructure and facilitation planning for major border 
crossings is fragmented and inadequate. The Federal government 
maintains an interagency group that coordinates review of proposals for 
additional crossings on the southwest border, but it does not deal with 
border communities or with planning of ancillary roadway or other needs 
beyond the crossings themselves. Adequate planning will require 
improved coordination among public and private entities, and among 
Federal, state, and local governments. Such planning should be 
binational and applied to both the northern and southern borders. The 
Federal Government should have the lead role as regards the involvement 
of foreign government entities. The Federal Government should also take 
on a leadership role as facilitator and convener of the mix of domestic 
government entities.
     There is insufficient linkage between available data on 
trade and transportation to permit the establishment of a firm 
definition of what constitutes existing or emerging international trade 
corridors for all modes of transportation.

Principal Recommendations

    Transportation Infrastructure InvestmentSection 1089 of the ISTEA 
directs the Department to evaluate the feasibility and advisability of 
establishing a discretionary border infrastructure investment program. 
While the Department is certainly capable of implementing such a 
program if it were established by the Congress, we do not believe it to 
be an advisable course of action. Even though the Department finds that 
investment is needed to address deficiencies in highway approaches to 
ports of entry and intermodal facilities, a number of alternative 
actions to the discretionary program are recommended:
     Fully fund the ISTEA to provide additional resources for 
states to allocate to trade-related and other high priority projects.
     With state and local governments, private financial 
institutions, carriers, and other private interests, develop a 
[[Page 13509]] range of funding options for infrastructure 
improvements, emphasizing existing Federal, non-Federal, and potential 
private sources. Identify, and eliminate wherever possible, impediments 
in Federal programs to innovative public/private collaborative efforts.
     As part of a future surface transportation authorization 
bill, develop Federal-aid program options to improve transportation 
infrastructure related to international trade, including border 
approach roads and connections to port, airport, and other intermodal 
facilities.
    Border Station CongestionThe Department will support a task force 
or multi-task forces composed of Federal, state and local government 
agencies, and the private sector to address congestion at border 
crossings in general or at specific gateways or crossings. The purpose 
of the task force(s) is to identify critical border initiatives and to 
aggressively promote the use of new technologies and other non-capital 
intensive methods of facilitating the movement of people, cargo, and 
vehicles through major border crossings. Any initiatives should be 
closely coordinated with the Mexican and Canadian governments. A 
limited number of pilot projects could be undertaken through a 
competitive process to address congestion at various gateways. Funding 
for these projects could include a variety of Federal, state, local or 
private resources.
    Transportation Planning and Data NeedsTo assure that planning for 
future border trade-related infrastructure and technology requirements 
for all modes is included in state and national planning processes, the 
Department of Transportation and other Federal agencies should 
establish binational planning zones to engage in an integrated 
binational planning process. Planning for infrastructure and technology 
improvements in these zones would be coordinated with Federal, state, 
local, and private sector organizations that would identify improvement 
priorities. Cross-border consultation and coordination would be an 
integral part of the overall process.
    To further assist in future border region and trade corridor 
transportation system planning, it is advisable to develop and 
implement a program for improving methods of collecting and analyzing 
data on cross-border trade and traffic flows.
    These detailed reports are (where PB numbers are listed) or will be 
available from the National Technical Information Service, 5285 Port 
Royal Road, Springfield, VA 22161, (703) 487-4634. All reports are 
numbered FHWA-PL-94-009-xx. The suffix (xx) is shown following the 
title listed below.

------------------------------------------------------------------------
                          Title                                 PB      
------------------------------------------------------------------------
ASSESSMENT OF BORDER CROSSINGS AND TRANSPORTATION                       
 CORRIDORS FOR NORTH AMERICAN TRADE: REPORT TO CONGRESS.  94-215806     
ISTEA SECTION 1089 STUDY:                                               
    Feasibility Study for an International Border                       
     Highway Infrastructure.............................                
    Discretionary Program (01)..........................  94-214319     
ISTEA SECTION 6015 STUDY:                                               
  SOUTHEAST:                                                            
    An Assessment of the Adequacy of East Coast and Gulf                
     of Mexico Port Infrastructure to Accommodate Trade                 
     with Mexico. (02)..................................  95-124111     
    U.S. Border Crossings with Canada and Mexico-Port                   
     Facilities, Inventory, and Constraints. Volume 1                   
     (03)...............................................  95-124228     
    U.S. Border Crossings with Canada and Mexico-Port                   
     Facilities, Inventory, and Constraints. Volume 2.                  
     (04)...............................................  95-112215     
  NORTHEAST:                                                            
    An Assessment of the Adequacy of U.S.-Canadian                      
     Infrastructure to Accommodate Trade through Eastern                
     Border Crossings. (05).............................  95-112041     
    Appendices:                                                         
        1. Descriptive Profiles of Maine Frontier. (06).  95-106860     
        2. Descriptive Profiles of Montreal South                       
         Frontier. (07).................................  95-112223     
        3. Descriptive Profiles of Eastern New York                     
         Frontier. (08).................................  95-112231     
        4. Descriptive Profiles of Niagara Frontier.                    
         (09)...........................................  95-112249     
        5. Descriptive Profiles of Michigan Frontier.                   
         (10)...........................................  95-112256     
    Summary of International Border Crossings Roundtable                
     Meeting Held in Buffalo, New York, June 7, 1993.                   
     (11)...............................................  95-124194     
    Summary of International Border Crossings Roundtable                
     Meeting Held in St. Louis, Missouri, June 9, 1993.                 
     (12)...............................................  95-124178     
    Summary of International Border Crossings Roundtable                
     Meeting Held in Norfolk, Virginia, June 11, 1993.                  
     (13)...............................................  95-124186     
  WEST:                                                                 
    Making Things Work: Transportation and Trade                        
     Expansion in Western North America                                 
        Volume 1: A Summary Report. (14)................  95-141263     
        Volume 2: Transportation and Trade Expansion in                 
         Western U.S. and Canada. (15)..................  95-112264     
        Volume 3: Transportation and Trade Expansion                    
         between the U.S. and Mexico. (16)..............  95-122891     
        Volume 4: Profiles of Western U.S.-Canada Border                
         Crossings. (17)................................  94-192218     
        Volume 5: Profiles of U.S.-Mexico Border                        
         Crossings. (18)................................  95-122453     
        Volume 6: Reaching Out: A Compendium of                         
         Stakeholder Views. (19)                          95-106852     
            Trade and Transportation in the                             
             Intermountain West. (20)...................  95-112066     
            U.S.-Mexico Transportation: A Trade                         
             Perspective (21)...........................  95-124236     
            Western U.S.-Canada Trade and Transportation                
             Perspectives from the Northern Border. (22)  95-112272     
            Western U.S.-Mexico Trade and Transportation                
             Perspectives from the Southern Border. (23)  95-123949     
            Future Assessment of North American Border:                 
             Perspectives on Key Factors Affecting North                
             American Trade and Transportation. (24)....  95-106837     
        Volume 7: Commissioned Special Reports. (25)....      95-       
            Disparities in the Law and Practice of                      
             Surface Transportation of Goods between the                
             U.S. and Mexico. (26)......................  95-142733     
            Financing Options for U.S.-Mexico Border                    
             Transportation Projects. (27)..............  95-106845     
            Transportation Technology Trends and North                  
             American Trade. (28).......................  95-112280     
            Case Study: The Sweetgrass, Montana and                     
             Coutts, Alberta Border Crossing. (29)......  95-112298     
            Working Paper on Trends in International                    
             Trade and Impacts on North American                        
             Transportation. (30).......................  94-192226     
            Working Paper on the Impact of Expanded U.S.-               
             Mexico Trade on the Western States (31)....  95-112306     
    Section 6015 Study: Results of the Futures                          
     Assessment Process. (32)...........................  95-112314     
[[Page 13510]]                                                          
                                                                        
    Future Assessment Reference Book, Whitefish,                        
     Montana, July 8-9, 1993. (33)......................  95-123816     
    Future Assessment Workbook, Whitefish, Montana, July                
     8-9, 1993. (34)....................................  95-123824     
    Future Assessment Reference Book, New Orleans,                      
     Louisiana, July 21-22, 1993. (35)..................  95-123832     
    Future Assessment Workbook, New Orleans, Louisiana,                 
     July 21-22, 1993. (36).............................  95-123840     
    Future Assessment Reference Book, Detroit, Michigan,                
     July 12-13, 1993. (37).............................  95-123857     
    Future Assessment Workbook, Detroit, Michigan, July                 
     12-13, 1993. (38)..................................      95-       
    Future Assessment Reference Book, Tucson, Arizona,                  
     July 23-24, 1993. (39).............................  95-123865     
    Descriptive Report on Trade and Transportation                      
     Patterns in the Western U.S.-Canada Region. (40)...  95-123873     
    Descriptive Report of Cross-border Traffic and                      
     Transportation in the Western U.S.-Canada Region.                  
     (41)...............................................  95-112322     
    Working Paper on Intermodal Requirements on the U.S.-               
     Canadian Border in Western North America. (42).....  95-112881     
    Working Paper on the Role of Government in Trade and                
     Transportation between U.S.-Canada in Western North                
     America. (43)......................................  95-144622     
    Working Paper Analysis of Sub-Regional Economic                     
     Trends Potentially Affecting U.S.-Canada Trade                     
     Patterns. (44).....................................  95-123899     
    Descriptive Report on Trade and Traffic Patterns                    
     between U.S.-Mexico. (45)..........................  94-192234     
    Working Paper on the Impact of Western Economic                     
     Growth on Trade with Mexico. (46)..................  95-112348     
    Working Paper on the Role of Government in Trade and                
     Transportation Between U.S.-Mexico. (47)...........  95-112355     
    Working Paper on Intermodal Requirements on the U.S.-               
     Mexico Border. (48)................................  95-112363     
    Descriptive Report on Cross-Border Travel Activity                  
     between the U.S., Canada and Mexico. (49)..........      95-       
    Working Paper Inventory of Institutional and Legal                  
     Barriers to Seamless Interstate Borders within the                 
     United States. (50)................................  95-112371     
    Regional Data Base and Working Paper on Regional                    
     Computerized Data Base. (51).......................  95-142865     
    Institutional Profile Data Base and Working Paper on                
     Institutional Profiles for Continental Trade and                   
     Transportation in the Western United States. (52)..  95-142741     
    Inventory of Existing Trade, Traffic and Visitor                    
     Flow Data Sources. (53)............................  95-112389     
    Working Summary of Key Methods of Forecasting Trade                 
     and Traffic Patterns. (54).........................  95-142758     
    Working Paper on Data Requirements for Intermodal                   
     Planning and Analysis. (55)........................  95-112397     
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[R Doc. 95-6145 Filed 3-10-95; 8:45 am]
BILLING CODE 4910-22-P