Notice2025-00474
Draft Designation of National Multimodal Freight Network and State Input Process
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Published
January 13, 2025
Issuing agencies
Transportation Department
Abstract
The U.S. Department of Transportation (DOT or Department) is publishing a draft designation of the National Multimodal Freight Network (NMFN or Network) as required Federal law. The designation is informed by the comments received on a notice published by DOT on April 12, 2024. DOT is also using this notice to request comments or proposed modifications to the draft Network prior to designating the Network. Once the Network is designated by DOT, States will have the opportunity to submit additional designations through the "State Input" process required by statute.
Full Text
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<title>Federal Register, Volume 90 Issue 7 (Monday, January 13, 2025)</title>
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[Federal Register Volume 90, Number 7 (Monday, January 13, 2025)]
[Notices]
[Pages 2781-2785]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2025-00474]
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DEPARTMENT OF TRANSPORTATION
Office of the Secretary
[Docket No. DOT-OST-2025-0002]
Draft Designation of National Multimodal Freight Network and
State Input Process
AGENCY: Office of the Secretary of Transportation (OST), Federal
Aviation Administration (FAA), Federal Highway Administration (FHWA),
Federal Railroad Administration (FRA), Maritime Administration (MARAD),
Federal Motor Carrier Safety Administration (FMCSA), Great Lakes St.
Lawrence Seaway Development Corporation (GLS), and Pipelines and
Hazardous Materials Safety Administration (PHMSA), Department of
Transportation.
ACTION: Draft designation and request for comment; response to
comments.
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SUMMARY: The U.S. Department of Transportation (DOT or Department) is
publishing a draft designation of the National Multimodal Freight
Network (NMFN or Network) as required Federal law. The designation is
informed by the comments received on a notice published by DOT on April
12, 2024. DOT is also using this notice to request comments or proposed
modifications to the draft Network prior to designating the Network.
Once the Network is designated by DOT, States will have the opportunity
to submit additional designations through the ``State Input'' process
required by statute.
DATES: Comments must be received on or before February 27, 2025 to
receive consideration by DOT with respect to the draft designation of
the NMFN.
ADDRESSES: To ensure that you do not duplicate your docket submissions,
please submit them by only one of the following means:
<bullet> Federal eRulemaking Portal: Go to <a href="https://www.regulations.gov">https://www.regulations.gov</a> and follow the online instructions for submitting
comments.
<bullet> Mail: Docket Management Facility, U.S. Department of
Transportation, 1200
[[Page 2782]]
New Jersey Ave. SE, W12-140, Washington, DC 20590-0001.
<bullet> Hand Delivery: West Building Ground Floor, Room W12-140,
1200 New Jersey Ave. SE, between 9 a.m. and 5 p.m., Monday through
Friday, except Federal holidays. The telephone number is (202) 366-
9329.
<bullet> Instructions: You must include the agency name and docket
number at the beginning of your comments. All comments received will be
posted without change to <a href="https://www.regulations.gov">https://www.regulations.gov</a>, including any
personal information provided.
FOR FURTHER INFORMATION CONTACT: Paul Baumer, Office of the Assistant
Secretary for Multimodal Freight, 202-366-1092 or via email at
<a href="/cdn-cgi/l/email-protection#c1a7b3a4a8a6a9b581a5aeb5efa6aeb7"><span class="__cf_email__" data-cfemail="c6a0b4a3afa1aeb286a2a9b2e8a1a9b0">[email protected]</span></a>.
SUPPLEMENTARY INFORMATION:
Background
Summary of Draft NMFN
The Draft NMFN consists of approximately 175,000 miles of highways,
railways, and waterways and 205 marine ports and airports that are
proposed for designation due to their criticality to freight movement
and global and domestic supply chains. The Network was designed to
promote intermodal connectivity, based on measurable data assessing the
significance of freight movement, including origins and destinations of
freight movements, and in consideration of the factors outlined in 49
U.S.C. 70103(b)(2). The Network is described in larger detail below.
Responses to 2024 NMFN RFI
On April 12, 2024, DOT published a Request for Information (RFI) in
the Federal Register (89 FR 25913) with a 60-day comment period
soliciting information on the ``Goals, Criteria, Thresholds, and
Measurable Data Sources for Designating the National Multimodal Freight
Network.'' DOT received 43 written responses to the April RFI on the
goals, criteria, thresholds, and measurable data sources for
designating the NMFN. The respondents included representatives from
State Departments of Transportation (State DOTs), Metropolitan Planning
Organizations (MPOs), private sector shippers and carriers, port
authorities, railroads, and community interest groups. DOT posed eight
questions to the public through the RFI, and while not all responses
addressed each question, several major themes emerged.
NMFN Purpose: A plurality of respondents indicated that the using
the NMFN to prioritize Federal formula or discretionary grant
investment was the most important purpose to ensuring the NMFN provides
a foundation for the U.S. to compete in the global economy. While this
was the most frequent answer among commenters who responded to this
question, DOT notes that several commenters felt strongly that the NMFN
should not be used to prioritize Federal funding in this manner. Other
commenters noted that NMFN should be linked with other Federal efforts
to prioritize investment in zero-emission infrastructure and
technologies, and that the NMFN can serve as a catalyst for economic
development and the creation of high-quality jobs in the zero-emission
freight sector.
How the NMFN will be used: Replying to the second question,
commenters described a variety of different plans for how they would
use the NMFN once designated. Several State and local governments
stated they planned to use the NMFN to better integrate freight
planning and investment in order to support their economic, safety, and
environmental goals. An association representing private sector
operators indicated that the NMFN could assist with optimizing shipping
routes and mode choice.
Prioritizing Statutory Factors: Section 70103(b)(2) sets forth
twelve factors DOT must consider in designating the NMFN. While, as
required by statute, DOT is considering all of the statutory factors in
its designation, DOT was particularly interested in how respondents
would prioritize these twelve statutory factors. Due to the diversity
in how commenters responded to the question, DOT chose to analyze the
frequency with which a factor was ranked in the top 3 by each
respondent. A table with the results is provided below:
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Frequency with
which factor
Factor was Top 3
ranked
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1. Origins and destinations of freight movement within, 6
to, and from the United States;........................
2. Volume, value, tonnage, and the strategic importance 5
of freight;............................................
3. Access to border crossings, airports, seaports, and 5
pipelines;.............................................
4. Economic factors, including balance of trade;........ 2
5. Access to major areas for manufacturing, agriculture, 8
or natural resources;..................................
6. Access to energy exploration, development, 3
installation, and production areas;....................
7. Intermodal links and intersections that promote 14
connectivity;..........................................
8. Freight choke points and other impediments 7
contributing to significant measurable congestion,
delay in freight movement, or inefficient modal
connections;...........................................
9. Impacts on all freight transportation modes and modes 2
that share significant freight infrastructure;.........
10. Facilities and transportation corridors identified 8
by a multi-State coalition, a State, a State freight
advisory committee, or an MPO, using national or local
data, as having critical freight importance to the
region;................................................
11. Major distribution centers, inland intermodal 9
facilities, and first- and last-mile facilities; \[3]\
and....................................................
12. The significance of goods movement, including 5
consideration of global and domestic supply chains.....
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Commenters' priorities were widely distributed across the statutory
factors, with every factor identified ranked in the top 3 at least
twice. Nevertheless, a clear theme emerged, with a plurality of
commenters expressing a clear preference that DOT prioritize
``Intermodal links and intersections that promote connectivity.'' This
aligns with the second most frequently cited factor, ``Major
distribution centers, inland intermodal facilities, and first- and
last-mile facilities.''
Other factors of note included ``Access to major areas for
manufacturing, agriculture, or natural resources'' and ``Facilities and
transportation corridors identified by a multi-State coalition, a
State, a State Freight Advisory Committee, or an MPO, using national or
local data, as having critical freight importance to the region.''
These comments informed DOT's approach to the Draft Network. First
and foremost, DOT prioritized ensuring the Network would support the
multimodal
[[Page 2783]]
movement of freight by including intermodal connections to the extent
supported by available data. A large share of marine ports and
airports, major multimodal freight generators, along with the National
Highway System (NHS)-designated intermodal connectors included in the
Primary Highway Freight System, were incorporated into the draft NMFN.
To incorporate the consideration of manufacturing, agriculture, and
natural resource economic sectors, along with other features of our
modern supply chains, DOT analyzed commodity flows from the Freight
Analysis Framework (FAF), Waybill, and Waterborne Commerce data, to
ensure the Network had a broad reach and covered routes significant for
one or more commodity groups. The data used and analyses conducted are
described in more detail in the NMFN Designation Methodology and Extent
section of this Notice.
Other Factors for Consideration: DOT asked respondents to provide
feedback on to what extent the NMFN should also reflect other factors,
including safety, climate and sustainability, equity, national defense,
consistency with other federally-designated networks, and
transformation. A majority of respondents were supportive of
considering these factors, with safety, and climate and sustainability
most frequently cited.
Community interest groups highlighted that NMFN designation should
factor in air quality improvements, address historical disparities and
promote equitable outcomes, and integrate meaningful participation from
disadvantaged communities in the designation process. DOT intends for
this notice and draft Network to serve as a starting point for
conversation and input from impacted communities on proposed
designations.
Reflecting the interest in consistency with other networks, DOT
used FHWA's Primary Highway Freight System (PHFS) as the initial base
layer of the NMFN. Combined with the remainder of the Interstate
Highway System, this constitutes more than 86.6% of the National
Highway Freight Network (NHFN). The remaining NHFN mileage,
constituting MPO assigned Critical Urban Freight Corridors (CUFCs) and
State assigned Critical Rural Freight Corridors (CRFCs), were not
comprehensively included in the base layer for the Draft Network, due
to the inconsistent approaches in designating routes and frequent
changes by States in assigning their limited CUFC/CRFC mileage. While
previously designated Critical Urban/Rural Freight corridors were not
included in the Draft Network base layer, DOT referred to designated
CUFC/CRFCs to help validate other data sources on freight movement when
necessary.
Reflecting national defense needs, DOT included the Strategic
Highway Network (STRAHNET), the Strategic Rail Corridor Network
(STRACNET), and Strategic Sealift Ports as part of the NMFN's base
layer.
Other Comments: Some respondents expressed an interest in a more
expansive highway network, noting in particular that the 2016 Interim
National Multimodal Freight Network did not sufficiently capture the
roadways significant to freight movement. It is worth noting that the
highway component of the 2024 draft Network is approximately 28% larger
than the 2016 Interim Network,\1\ prior to any additional designations
that may follow this Notice.
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\1\ The statutory language establishing the 2016 Interim
National Multimodal Freight Network was repealed in the
Infrastructure Investments and Jobs Act, Public Law 117-58 (2021).
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The draft rail and waterway Network components were chosen based on
available usage data, described below, with an effort to take a
consistent approach to designation across modes. DOT also believes that
these designations align with multiple statutory considerations while
also encouraging investment in relatively under-utilized assets and
will encourage and optimize the use of all modes over time as part of
the broader multimodal freight transportation system in the U.S.
Encouraging increased utilization of rail and waterway modes will
increase the energy efficiency and reduce greenhouse gas emissions
related to freight transportation.\2\
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\2\ <a href="https://www.transportation.gov/priorities/climate-and-sustainability/us-national-blueprint-transportation-decarbonization">https://www.transportation.gov/priorities/climate-and-sustainability/us-national-blueprint-transportation-decarbonization</a>.
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NMFN Designation Methodology and Extent
Highway Component Description: In designating the highway component
of the NMFN, the FHWA-designated PHFS (23 U.S.C. 167(d)), the Strategic
Highway Network (STRAHNET), and the Interstate Highway System were
included. Additional segments were added by evaluating both Freight
Analysis Framework (FAF) \3\ data and Highway Performance Monitoring
System (HPMS) \4\ data, with consideration given to overall freight
volumes as well as specific freight commodity groups. The specific
thresholds below were proposed, in part, to produce a draft network
that balanced the goals of a prioritized network and a network with
broad coverage. Using 2022 HPMS data, facilities with 4,000 Annual
Average Daily Truck Traffic (AADTT) or greater (85th percentile) and
facilities with AADTT between 1,200 (70th percentile of volumes) and
4,000 (85th percentile) were identified. Using FAF modeling, segments
that carried 8,170 total annual tons of freight, inclusive of all
commodities (top 20%) and segments that fall in the top 1% of annual
tons of freight carried by specific commodity groupings (using FAF
categories) were also identified. Facilities with 4,000 AADTT or
greater according to HPMS were included independent of FAF modeling.
Highway segments identified by FAF commodity flow modeling were added
when HPMS data showed AADTT between 1,200 (70th percentile of volumes)
and 4,000 (85th percentile). For segments where FAF commodity flow
modeling and HPMS counts did not overlap, DOT considered other factors
to determine whether to include them in the Network. These factors
included whether the segment was on the National Network; \5\ whether
it provided access to manufacturing, agriculture, natural resources,
energy exploration, development, installation, or production areas; or
if the roadway was discussed in a completed State Freight Plan.\6\ As
part of this review, consideration was also given to designated CUFCs
and CRFCs under 23 U.S.C. 167, as well as logical connections to other
designated roadway segments.
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\3\ <a href="https://www.bts.gov/faf">https://www.bts.gov/faf</a>.
\4\ <a href="https://www.fhwa.dot.gov/policyinformation/hpms.cfm">https://www.fhwa.dot.gov/policyinformation/hpms.cfm</a>.
\5\ The National Network is a congressionally authorized network
for commercial truck traffic on which Federal truck width and length
limits apply uniformly. <a href="https://ops.fhwa.dot.gov/freight/infrastructure/national_network.htm">https://ops.fhwa.dot.gov/freight/infrastructure/national_network.htm</a>.
\6\ For links to completed State Freight Plans, visit: <a href="https://ops.fhwa.dot.gov/freight/fpcb/toolkit/allplans.aspx">https://ops.fhwa.dot.gov/freight/fpcb/toolkit/allplans.aspx</a>.
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Highway Network Extent: 78,274 total roadway miles
<bullet> Urban miles (urban areas of 50,000 population or greater):
19,100
<bullet> Rural miles: 59,174
Rail Component Description: The rail Network designation includes
all intermodal rail routes, as identified by the FRA, and all Strategic
Rail Corridor Network (STRACNET) routes. Additional rail routes were
added for segments in the top \2/3\ based on the volume of freight
carried, using Surface Transportation Board (STB) Waybill data.\7\
Additional segments were added that carry the top 102% of freight by
commodity groups, consistent with the FAF commodity groupings used for
the
[[Page 2784]]
highway designation. As an additional measure of significance, rail
segments that carry five trains or more per day were also added. This
threshold is more likely to capture important segments operated by
short line railroads. Other segments were added if they provided
logical connections to segments identified through the described
methodology.
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\7\ <a href="https://www.stb.gov/reports-data/waybill/">https://www.stb.gov/reports-data/waybill/</a>.
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Rail Network Extent: 80,309 total rail miles:
<bullet> Class 1 miles: 67,476
<bullet> Class 2 miles: 3,047
<bullet> Class 3 miles: 9,786
Marine Ports Component Description: Marine ports that annually move
1.5 million tons of freight or greater, as estimated by the most recent
U.S. Army Corps of Engineers (USACE) Waterborne Commerce Statistics
Data (2022),\8\ were added to the Network. This threshold was informed
by stakeholder input and to guarantee that selected ports would be
served by moderate use waterways as defined by USACE. Commercial
Strategic Seaports, as identified by the Maritime Administration and
U.S. Department of Defense's National Port Readiness Network,\9\ were
also added to the Network. To ensure coverage across commodity types,
DOT also reviewed commodity level data to identify ports that handled
at least 10% of any waterborne commodity type. This identified one
additional port, Kivalina, Alaska, which was added to the Network.
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\8\ <a href="https://www.iwr.usace.army.mil/About/Technical-Centers/WCSC-Waterborne-Commerce-Statistics-Center-2/WCSC-Waterborne-Commerce/">https://www.iwr.usace.army.mil/About/Technical-Centers/WCSC-Waterborne-Commerce-Statistics-Center-2/WCSC-Waterborne-Commerce/</a>.
\9\ <a href="https://www.maritime.dot.gov/ports/national-port-readiness-network-nprn">https://www.maritime.dot.gov/ports/national-port-readiness-network-nprn</a>.
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Marine Ports Extent: 140 Ports.
<bullet> Ports with 1.5 million annual tons or greater: 137
(includes 16 of 18 Commerical Strategic Seaports)
<bullet> Additional Commercial Strategic Seaports: 2 (Everett, WA
and Apra Harbor, GU)
<bullet> Additional ports carrying 10% or more of a freight
commodity: 1 (Kivalina, AK)
Waterways Component Description: DOT is defining ``Waterways'' of
the NMFN to include both elements of the inland waterway system and
coastal navigation projects as categorized by USACE, who group segments
of the National Waterways Network \10\ as high use, moderate use, and
low use. The network includes all high use waterways, which are those
deep and shallow draft coastal navigation projects with 10 million tons
or greater, and those inland waterways with 3 billion ton-miles or
greater, based on the latest 5-year average (2018-2022) waterborne
commerce statistics. The network also includes all moderate use
waterways, which are those deep and shallow draft coastal navigation
projects with one to 10 million tons, and those inland waterways with 1
to 3 billion ton-miles, based on the latest 5-year average waterborne
commerce statistics. The Draft Network does not include low-use
waterways, with the exception of certain offshore coastwise shipping
routes in Maine and Alaska, island segments, and a handful of small
connections made to provide direct access to a strategic seaport.
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\10\ <a href="https://geodata.bts.gov/datasets/usdot::navigable-waterway-network-lines/about">https://geodata.bts.gov/datasets/usdot::navigable-waterway-network-lines/about</a>.
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Waterways Extent: 21,329 total waterway miles.
<bullet> High Use waterways miles: 9,761
<bullet> Moderate Use waterways miles: 7,360
<bullet> Low Use waterways miles: 4,208
Airport Component Description: 2022 Bureau of Transportation
Statistics (BTS) T-100 market data \11\ was used to identify freight
volumes at airports. Airports that carry more than 0.2% of all freight
and mail weight at all National Plan of Integrated Airport Systems
(NPIAS) airports were designated. Additional NPIAS airports were
designated that carry 0.2% of all freight weight, excluding mail
weight. Additional NPIAS airports were also designated that had a
higher-than-average freight to passenger ratio and fell within the top
130 of all freight and mail weight.
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\11\ <a href="https://geodata.bts.gov/datasets/usdot::t-100-domestic-market-and-segment-data/explore">https://geodata.bts.gov/datasets/usdot::t-100-domestic-market-and-segment-data/explore</a>.
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Airport Extent: 65 total airports.
<bullet> 57 airports meet the 0.2% freight and mail threshold.
<bullet> 2 additional airports meet the 0.2% of freight (no mail)
threshold.
<bullet> 6 additional airports meet the freight to passenger ratio
criteria and are in the top 130 by all freight and mail weight.
Other Infrastructure Considered: Pipelines and pipeline terminals
are not included on the Network due to data security challenges, but
connections to pipeline intermodal facilities were considered as part
of other Network component designations. DOT conducted an analysis and
determined that approximately 1,056 of 1,401 pipeline terminals
identified by the Bureau of Transportation Statistics (BTS) \12\ are
located within 1 mile of the draft designated Network.
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\12\ <a href="https://geodata.bts.gov/datasets/usdot::intermodal-freight-facilities-pipeline-terminals/about">https://geodata.bts.gov/datasets/usdot::intermodal-freight-facilities-pipeline-terminals/about</a>.
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DOT also reviewed a database of Trailer-on-Flatcar (TOFC)/
Container-on-Flatcar (COFC) intermodal terminals identified by BTS \13\
to determine the extent to which the draft Network supports intermodal
interchange between rail and truck. 230 of 241 identified TOFC/COFC
terminals are located within 1 mile of the draft designated Network.
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\13\ <a href="https://geodata.bts.gov/datasets/usdot::intermodal-freight-facilities-rail-tofc-cofc/about">https://geodata.bts.gov/datasets/usdot::intermodal-freight-facilities-rail-tofc-cofc/about</a>.
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Opportunity for Additional Stakeholder Input and Next Steps
DOT is making an interactive version of the draft designated NMFN
available here: (<a href="https://www.transportation.gov/freight-infrastructure-and-policy/NMFN">https://www.transportation.gov/freight-infrastructure-and-policy/NMFN</a>). The web version of the map includes layers for draft
designated roadways, railways, waterways, marine ports, and airports.
It also includes multiple reference layers, including DOT's database of
trailer-on-flat-car/container-on-flat-car intermodal facilities, marine
Roll-on/Roll-off terminals, and air cargo terminals. Other networks,
including the NHFN and the NHS Intermodal Connectors, are also
included. Finally, DOT has also included a Safety Data layer capturing
the location of truck-related fatalities from 2017-2022 Fatality
Analysis Reporting System (FARS) database. These reference layers are
being made available to provide additional context for DOT stakeholders
and highlight opportunities for additional analysis in the future.
DOT is encouraging all stakeholders, including multimodal freight
system users, transportation providers, metropolitan planning
organizations, local governments, ports, airports, railroads, and
States to submit comments with proposed modifications to the draft
network. DOT is particularly interested in hearing from the following
groups:
<bullet> Tribal Nations who own and operate freight infrastructure,
and Tribal users of the freight system, and Tribal members impacted by
freight movement.
<bullet> Members of underserved, overburdened, and disadvantaged
communities that are impacted by freight movement.
Due to limitations in available freight data, DOT is interested in
feedback or proposed modifications of the Draft Network that address
the following areas:
<bullet> Preferred routing through urbanized areas, particularly to
minimize negative community impacts.
<bullet> Key alternative routes that provide network redundancy are
important for critical facilities, ensuring for resilience to
disruptions.
[[Page 2785]]
<bullet> Volumes and values of commodities that flow through
critical intermodal facilities.
DOT also invites comment on future opportunities for analysis,
including the location and availability of dedicated truck parking,
refueling sites for zero-emission medium and heavy-duty vehicles,
priority freight rail lines and rail yards for electrification, or
priority ports for shifting to shore power to improve air quality for
local communities.
State Input Process
This Notice is providing an opportunity for stakeholders to comment
on a draft Network. Based on the feedback provided to this Notice, DOT
plans to designate the NMFN in Spring 2025.
Once DOT has designated the NMFN, States will have the opportunity
to submit ``Additional Designations,'' per the process outlined in 49
U.S.C. 70103(b)(4). States will be required to consider nominations for
additional designations from MPOs, State Freight Advisory Committees,
and the owners and operators of multimodal freight infrastructure, and
are highly encouraged to engage with community groups, particularly
environmental justice communities, before submitting their
designations. States will be limited to an additional 30% of mileage
within each mode based on the DOT-designated network for the State.
States will be required to certify their additional designations meet
the requirements of statute. DOT anticipates providing States with an
extended period of no less than 180 days to make these designations.
DOT is required to redesignate the NMFN within 5 years after the
initial designation, and every 5 years thereafter.
Schedule
DOT is requesting comments, feedback, and proposed modifications
within 45 days of publication of this Notice.
Public Comment
DOT will accept written comments on the public docket associated
with this notice. If commenters would like to submit GIS data files
with proposed modifications, please email <a href="/cdn-cgi/l/email-protection#ee889c8b8789869aae8a819ac0898198"><span class="__cf_email__" data-cfemail="593f2b3c303e312d193d362d773e362f">[email protected]</span></a> to arrange
for a file transfer.
Issued: January 6, 2025.
Allison L. Dane Camden,
Principal Deputy Assistant Secretary for Multimodal Freight.
[FR Doc. 2025-00474 Filed 1-10-25; 8:45 am]
BILLING CODE 4910-9X-P
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