This research proposes an innovative bi-level optimization model for the strategic placement of piggyback (roll-on/roll-off, Ro-La) terminals in Uzbekistan. The proposed framework integrates Geographic Information Systems (GIS)-based site screening, site suitability assessment, freight flow modeling, and multi-objective optimization to simultaneously minimize transportation costs, travel time, and CO₂ emissions. The Non-dominated Sorting Genetic Algorithm II (NSGA-II) is employed to identify optimal terminal configurations, while freight assignment decisions are incorporated using a binary logit model to achieve balanced network flows. GIS analysis is applied to pre-evaluate candidate locations according to engineering, environmental, and land-use constraints. The proposed model is validated using national freight data and applied to major transportation corridors in Uzbekistan. The results demonstrate that optimized Ro-La terminal configurations can improve freight network efficiency, reduce environmental impacts, and support sustainable intermodal transportation development. The developed framework provides a reliable decision-support tool for infrastructure planning, particularly in developing economies, where efficient allocation of transportation resources and environmental considerations are critical.