FEASIBILITY OF INTERSTATE TOLLING General Tolling Resource Document December 30, 2016 Prepared for: Wisconsin Department of Transportation Prepared by: Feasibility of Interstate Tolling General Tolling Resource Document DISCLAIMER DISCLAIMER This report was funded by the Wisconsin Department of Transportation (WisDOT) under project #0900-04-25. The contents of this report reflect the views of the authors who are responsible for the facts and accuracy of the data presented herein. The contents do not necessarily reflect the official view of WisDOT at the time of publication. This document is disseminated under the sponsorship of WisDOT in the interest of information exchange. WisDOT assumes no liability for its contents or use thereof. This report does not constitute a standard, specification or regulation. WisDOT does not endorse products or manufacturers. Trade and manufacturers’ names may appear in this report only because they are considered essential to the object of the document. SPONSOR AGENCY NAME AND ADDRESS Wisconsin Department of Transportation Office of Policy, Finance and Improvement PO Box 7910 Madison, WI 53707-7910 [email protected] page | i | Feasibility of Interstate Tolling General Tolling Resource Document PREFACE PREFACE This general tolling resource document provides an overview of fundamental tolling concepts and conveys the historical context and current applications of tolling for a cross-section of agencies. The document is the first deliverable prepared by HNTB and TranSmart in response to Wisconsin Department of Transportation (WisDOT) project #0900-04-25, addressing the feasibility of state- sponsored Interstate tolling. This document, in conjunction with other analyses, is intended to partially fulfill the requirements of the Transportation Fund solvency study as outlined in Section 9145 (5f), 2015 Wisconsin Act 55. As the purchasing power of traditional motor fuel tax revenues declines, agencies are increasingly turning to tolling as a reliable source of funding to support surface transportation needs. Technology has accelerated this trend as tolling has moved from cash-based collection to Electronic Toll Collection (ETC) to Open Road Tolling (ORT) and All-Electronic Tolling (AET). This progression has allowed motorists to pay tolls at highway speeds saving time and money. Technological advances have also allowed for more efficient toll collection and led to improved safety, reduced congestion and fewer vehicle emissions that harm the environment. Agencies use tolling for a variety of purposes, including traffic congestion control; revenue generation for single projects; maintenance of existing systems; and aggressive capital expansion across entire geographic regions. Because different authorities use tolling for different reasons, they have multiple legal tolling frameworks that address when and where tolling may occur; the establishment of a tolling authority; governance and administrative support for the authority; restrictions on authority actions and revenue use; and authority mechanisms to enforce toll payment. An understanding of tolling fundamentals is necessary to address other policy decisions including overall tolling policy, toll rate structure, vehicle classification, toll collection method, and roadside and back-office technology. This document addresses the feasibility for state-sponsored tolling by first describing the history and progression of tolling in the United States. It then addresses toll operations, including the advantages of newer collection methods and the challenges introduced by those methods. Typical design approaches and technology are discussed as an overview of the different ways in which toll systems operate where the “rubber meets the road.” This document also provides a brief overview of considerations that toll authorities encounter when communicating with key stakeholders, the media and the general public. Finally, there is a summary of existing toll authorities and concrete examples of toll implementation methods utilized by these agencies. page | ii | Feasibility of Interstate Tolling General Tolling Resource Document TABLE OF CONTENTS CONTENTS 1. BRIEF TOLLING HISTORY ....................................................................... 1-1 1.1 History of Tolling in the U.S. ............................................................................................. 1-1 1.2 Environmental Justice ....................................................................................................... 1-4 1.3 Previous Wisconsin Tolling Studies .................................................................................. 1-5 1.4 Wisconsin Transportation Policy and Finance Commission ........................................... 1-10 1.5 Transportation Funding in Wisconsin.............................................................................. 1-11 2. TOLL OPERATIONS .................................................................................. 2-1 2.1 Toll Collection ................................................................................................................... 2-1 2.2 Enforcement and Reciprocity ............................................................................................ 2-4 2.3 Interoperability .................................................................................................................. 2-5 2.4 Pricing and Managed Lanes ............................................................................................. 2-7 2.5 Utilization of Consultants ................................................................................................ 2-10 3. TYPICAL DESIGNS AND TECHNOLOGIES ............................................. 3-1 3.1 Tolling Locations and Payment Zones .............................................................................. 3-1 3.2 Tolling Technology ............................................................................................................ 3-3 4. FEASIBILITY STUDIES AND FINANCING ................................................ 4-1 4.1 Overview of Toll Feasibility Analysis ................................................................................. 4-1 4.2 Project and Scenario Development .................................................................................. 4-3 4.3 Roadway Capital Costs Estimates .................................................................................... 4-4 4.4 Roadway O&M and R&R Costs Estimates ....................................................................... 4-5 4.5 Tolling Capital and O&M Costs Estimates ........................................................................ 4-6 4.6 Traffic and Revenue Forecast........................................................................................... 4-8 4.7 Financial Feasibility ......................................................................................................... 4-11 5. COMMUNICATIONS .................................................................................. 5-1 5.1 Key Stakeholder Outreach ................................................................................................ 5-1 5.2 Customer and Media Outreach......................................................................................... 5-1 page | iii | Feasibility of Interstate Tolling General Tolling Resource Document TABLE OF CONTENTS 6. CASE STUDIES ......................................................................................... 6-1 6.1 Overview ........................................................................................................................... 6-1 6.2 Detailed Case Studies ...................................................................................................... 6-6 6.3 Alternative Project Deliveries .......................................................................................... 6-23 APPENDICES APPENDIX A: Definitions (Common Terms and Acronyms) APPENDIX B: IBTTA’s 2015 Report on Tolling in the United States APPENDIX C: HNTB’s THINK Whitepaper: Leveraging tolls in the 21st century page | iv | Feasibility of Interstate Tolling General Tolling Resource Document TABLE OF CONTENTS FIGURES Figure 1-1: States with Toll Facilities .................................................................................................. 1-3 Figure 2-1: U.S. Toll Interoperability ................................................................................................... 2-6 Figure 2-2: Example Time-of-Day Toll Schedule (Houston’s Katy Managed Lanes) ......................... 2-8 Figure 2-3: Managed Lanes (Transurban) ........................................................................................ 2-10 Figure 2-4: Priced Managed Lanes across the United States .......................................................... 2-11 Figure 3-1: Toll Facilities and Payment Zones ................................................................................... 3-2 Figure 3-2: Toll Payment Zones on Optimized Barrier Systems ......................................................... 3-3 Figure 3-3: Typical Toll Gantry Setup ................................................................................................. 3-5 Figure 3-4: SmartToll 2-Lane Uni-Directional Tolling Layout .............................................................. 3-6 Figure 3-5: U.S. Transponder Communication Protocols ................................................................... 3-9 Figure 6-1: Organization