CTTolling_Volume II:Layout 1 2/18/2009 11:01 AM Page 1
draft final report
Connecticut Electronic Tolls and Congestion Pricing Study Volume 2 – Background Report
prepared for
Connecticut Transportation Strategy Board Connecticut Office of Policy and Management
prepared by
Cambridge Systematics, Inc. 100 CambridgePark Drive, Suite 400 Cambridge, Massachusetts 02140 with
Urbitran, a division of DMJM Harris/AECOM IBI Group Fitzgerald & Halliday, Inc. Sam Schwartz, PLLC
February 2009
Draft Final (February 2009) Connecticut Electronic Tolls and Congestion Pricing Study – Draft Final Report – Volume 2: Background Report
Table of Contents
1.0 Introduction...... 1-1 1.1 Background and Overview...... 1-1 1.2 Methodology...... 1-4
2.0 Institutional and Legal Considerations...... 2-1 2.1 Legal Implications of Past Actions ...... 2-1 2.2 Federal Laws Related to Tolling and Congestion Pricing ...... 2-2 2.3 Connecticut Statutes...... 2-8 2.4 Legal and Institutional Aspects of Enforcement...... 2-9 2.5 Institutional Considerations...... 2-10
3.0 All Electronic Tolling – Operational and Deployment Challenges...... 3-1 3.1 All Electronic Tolling – Operational Program Functions ...... 3-1 3.2 All Electronic Tolling Deployment...... 3-19
4.0 Consideration of Public-Private Partnerships and Contractual Issues...... 4-1 4.1 PPP Approaches...... 4-1 4.2 Institutional Considerations in Establishing a PPP Program...... 4-4 4.3 Applying PPP Approaches to Projects – Theory ...... 4-7
5.0 Privacy ...... 5-1 5.1 Issue 1 – Collection of Personal Information...... 5-1 5.2 Issue 2 – Retention of Personal Information...... 5-5 5.3 Issue 3 – Sharing of Personal Information with Other Parties ...... 5-6
6.0 Public Acceptance...... 6-1
7.0 Concept A – New Toll Express Lanes ...... 7-1 7.1 Institutional and Legal ...... 7-3 7.2 Technology and Deployment ...... 7-3 7.3 Potential PPP Approaches ...... 7-5 7.4 Privacy ...... 7-6 7.5 Technical Analysis of Project A-1 – Express Toll Lanes: I-95 – Branford to Rhode Island ...... 7-6 7.6 Technical Analysis of Project A-2 – Express Toll Lanes: I-84 – Waterbury to New York State Line...... 7-17 7.7 Technical Analysis of Project A-3 – All Projects Combined, A-1 and A-2 .... 7-23 7.8 Financial Analysis of Concept A – New Toll Express Lanes ...... 7-24
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Table of Contents (continued)
8.0 Concept B – Border Tolling at Major Highways ...... 8-1 8.1 Institutional and Legal ...... 8-3 8.2 Technology and Deployment ...... 8-5 8.3 Potential PPP Approaches ...... 8-6 8.4 Privacy ...... 8-7 8.5 Technical Analysis of Concept B – Border Tolling at Major Highways ...... 8-7 8.6 Financial Analysis of Concept B – Border Tolling at Major Highways...... 8-25
9.0 Concept C – Toll Trucks on Limited Access Highways...... 9-1 9.1 Institutional and Legal ...... 9-2 9.2 Technology and Deployment ...... 9-3 9.3 Potential PPP Approaches ...... 9-5 9.4 Privacy ...... 9-6 9.5 Technical Analysis of Concept C – Toll Trucks on Limited Access Highways ...... 9-6 9.6 Financial Analysis of Concept C – Toll Trucks on Limited Access Highways ...... 9-24
10.0 Concept D – HOV to HOT Lane Conversion ...... 10-1 10.1 Institutional and Legal ...... 10-10 10.2 Technology and Deployment ...... 10-10 10.3 Potential PPP Approaches ...... 10-11 10.4 Privacy ...... 10-12 10.5 Technical Analysis of Project D-1 – Interstate 84 HOT Lane ...... 10-12 10.6 Technical Analysis of Project D-2 – Interstate 91 HOT Lane ...... 10-21 10.7 Technical Analysis of Project D-3 – Combined HOT Lanes...... 10-27 10.8 Financial Analysis of Concept D – HOV to HOT Lane Conversion ...... 10-28
11.0 Concept E – Convert Highway Shoulders to HOT Lanes...... 11-1 11.1 Institutional and Legal ...... 11-3 11.2 Technology and Deployment ...... 11-4 11.3 Potential PPP Approaches ...... 11-4 11.4 Privacy ...... 11-4 11.5 Technical Analysis of Concept E – Convert Shoulders to HOT Lanes...... 11-5
12.0 Concept F – Toll Individual Highways Needing New Capacity ...... 12-1 12.1 Institutional and Legal ...... 12-4 12.2 Technology and Deployment ...... 12-5 12.3 Potential PPP Approaches ...... 12-7 12.4 Privacy ...... 12-7 12.5 Technical Analysis of Project F-1 – Toll All Lanes of I-95 – Branford to Rhode Island State Line to Fund Improvements...... 12-8
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Table of Contents (continued)
12.6 Technical Analysis of Project F-2 – Toll All Lanes of I-84 – Waterbury to New York State Line to Fund Improvements ...... 12-21 12.7 Technical Analysis of Project F-3 – Projects F-1 and F-2 Combined ...... 12-30 12.8 Financial Analysis of Concept F – Toll Individual Highways Needing New Capacity ...... 12-32
13.0 Concept G-1 –Toll All Limited Access Highways...... 13-1 13.1 Institutional and Legal ...... 13-2 13.2 Technology and Deployment ...... 13-3 13.3 Potential PPP Approaches ...... 13-3 13.4 Privacy ...... 13-4 13.5 Technical Analysis of Project G-1 – Toll All Limited Access Facilities...... 13-4 13.6 Financial Analysis of Concept G-1 – Toll All Limited Access Highways ..... 13-24
14.0 Concept G-2 – Statewide Tolling on All Vehicle Miles Traveled ...... 14-1 14.1 Institutional and Legal ...... 14-2 14.2 Technology and Deployment ...... 14-3 14.3 Potential PPP Approaches ...... 14-4 14.4 Privacy ...... 14-4 14.5 Financial Analysis of Concept G-2 – Statewide Tolling on All Vehicle Miles...... 14-5
15.0 Concept H – Congested Corridor Tolling ...... 15-1 15.1 Institutional and Legal ...... 15-2 15.2 Technology and Deployment ...... 15-2 15.3 Potential PPP Approaches ...... 15-3 15.4 Privacy ...... 15-3 15.5 Technical Analysis of Concept H – Congested Corridor Tolling...... 15-3 15.6 Financial Analysis of Concept H – Congested Corridor Tolling...... 15-21
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List of Tables
1.1 Typical Capital Costs of Toll Installations...... 1-6
2.1 Connecticut Air Quality Status ...... 2-3
4.1 Types of PPP Approaches in Surface Transportation Projects...... 4-4
4.2 Potential Rewards and Risks of PPP Approaches by Partner ...... 4-6
4.3 Criteria for Selecting PPP Approaches in Surface Transportation Projects...... 4-8
5.1 Hierarchy of Privacy Implications of Journey Information ...... 5-3
7.1 Forecast Traffic Operational Impacts – 2015 Levels, Project A-1 – Express Toll Lanes: I-95 – Branford to Rhode Island ...... 7-8
7.2 Annual Toll Revenue: 2015 and 2030, Project A-1 – Express Toll Lanes: I-95 – Branford to Rhode Island...... 7-9
7.3 Life-Cycle Toll Collection Costs, Concept A – Express Toll Lanes ...... 7-11
7.4 Illustrative Implementation Durations, Concept A – Express Toll Lanes...... 7-14
7.5 Environmental Impact Summary, Project A-1 – Express Toll Lanes: I-95 – Branford to Rhode Island...... 7-15
7.6 Operational Impacts – 2015 Levels, Project A-2 – Express Toll Lanes: I-84 – Waterbury to New York State Line ...... 7-18
7.7 Estimated Annual Toll Revenue in 2015, Project A-2 – Express Toll Lanes: I-84 – Waterbury to New York State Line ...... 7-19
7.8 Environmental Impact Summary, Project A-2 – Express Toll Lanes: I-84 – Waterbury to New York State Line ...... 7-21
7.9 Annual Toll Revenue: 2015 and 2030, Projects A-1 and A-2 Combined...... 7-23
7.10 Financial Analysis of Concept A – New Toll Express Lanes ...... 7-24
7.11 Annual Toll Revenue and Expense Estimates Concept A-1 –I-95 Express Toll Lanes (Millions of Year-of Expenditure Dollars) ...... 7-25
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List of Tables (continued)
7.12 Annual Toll Revenue and Expense Estimates Concept A-2 – I-84 Express Toll Lanes (Millions of Year-of-Expenditure Dollars)...... 7-26
8.1 Toll Rates for Concept B: Border Tolling...... 8-2
8.2 Diversion Routes for Concept B – Border Tolling ...... 8-9
8.3 Diverted Vehicles at Border Crossings by Toll Level: 2015 and 2030, Concept B – Border Tolling ...... 8-9
8.4 VMT, VHT, and Speed Changes, Concept B – Border Tolling...... 8-10
8.5 Estimated Annual Toll Revenue, Concept B – Border Tolling: 2015 and 2030, 2008 Dollars ...... 8-17
8.6 Life-Cycle Toll Collection Costs, Concept B – Border Tolling...... 8-18
8.7 Illustrative Implementation Durations, Concept B – Border Tolling...... 8-20
8.8 Environmental Impact Summary, Concept B – Border Tolling ...... 8-22
8.9 Financial Analysis of Concept B – Border Tolling at Major Highways...... 8-26
8.10 Annual Toll Revenue and Expense Estimates Concept B – Border Tolling at Major Highways (Millions of Year-of-Expenditure Dollars)...... 8-26
9.1 Study Highways and Alternate Diversion Routes, Concept C – Toll Trucks on Limited Access Highways...... 9-7
9.2 Per Mile Tolls for Different Vehicle Classes, Concept C – Toll Trucks on Limited Access Highways ...... 9-8
9.3 Diverted Vehicles by Toll Levels: 2015, Concept C – Toll Trucks on Limited Access Highways ...... 9-9
9.4 Truck Tolling Only- Diverted Vehicles by Toll Levels: 2030, Concept C: Toll Trucks on Limited Access Highways...... 9-10
9.5 Corridor Traffic Operational Impacts at Toll Level 2 in 2015 and 2030, Concept C – Toll Trucks on Limited Access Highways...... 9-11
9.6 Toll Trips and Revenue Forecasts (in 2008 Dollars) for 2015 and 2030 by Study Corridors, Concept C – Toll Trucks on Limited Access Highways ...... 9-14
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List of Tables (continued)
9.7 Life-Cycle Toll Collection Costs, Concept C – Toll Trucks on Limited Access Highways...... 9-15
9.8 Illustrative Construction Durations, Concept C – Toll Trucks on Limited Access Highways...... 9-17
9.9 Summary of Environmental Impacts, Concept C – Toll Trucks on Limited Access Highways...... 9-20
9.10 Financial Analysis of Concept C – Toll Trucks on Limited Access Highways .... 9-25
9.11 Annual Toll Revenue and Expense Estimates Concept C – Toll Trucks on Limited Access Highways (Millions of Year-of-Expenditure Dollars) ...... 9-25
10.1 HOV Lane Average Daily Vehicles at Peak Load Point: 2007, I-91 and I-84...... 10-8
10.2 2007 Average Daily Vehicles at Peak Load Points, I-91 and I-84 GP and HOV Lane ...... 10-9
10.3 Forecast Average Weekday Volumes at Peak Load Point: 2015, Project D-1 – Interstate 84 HOT Lane ...... 10-13
10.4 Corridor Traffic Operational Impacts: Average Weekday in 2015, Project D-1 – Interstate 84 HOT Lane ...... 10-13
10.5 Forecast HOT Lane Annual Toll Revenue: 2008 Dollars, Project D-1 – Interstate 84 HOT Lane ...... 10-15
10.6 Life-Cycle Toll Collection Costs ...... 10-16
10.7 Illustrative Implementation Durations, Project D-1 – Interstate 84 HOT Lane ..... 10-17
10.8 Environmental Impact Summary, Project D-1 – Interstate 84 HOT Lane ...... 10-19
10.9 Forecast Average Weekday Volumes at Peak Load Point: 2015, Project D-2 – Interstate 91 HOT Lane ...... 10-22
10.10 HOT Lane Corridor Operational Impacts: 2015, Project D-2 – Interstate 91 HOT Lane...... 10-23
10.11 Forecast Annual Toll Revenue: 2008 Dollars, Project D-2: Interstate 91 HOT Lane ...... 10-24
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List of Tables (continued)
10.12 Summary of Environmental Impacts, Project D-2 – I-84 HOT Lane...... 10-25
10.13 Forecast HOT Lane Annual Toll Revenue: 2008 Dollars, Project D-3 – Combined HOT Lanes ...... 10-27
10.14 Financial Analysis of Concept D – HOV to HOT Lane Conversion...... 10-28
10.15 Annual Toll Revenue and Expense Estimates Concept D-1 – I-84 HOV to HOT Lane Conversion (Millions of Year-of-Expenditure Dollars)...... 10-29
10.16 Annual Toll Revenue and Expense Estimates Concept D-2: I-91 HOV to HOT Lane Conversion (Millions of Year-of-Expenditure Dollars)...... 10-30
12.1 Traffic Operations Changes: 10 Cents per Mile, Project F-1 – Toll All Lanes of I-95 – Branford to Rhode Island State Line to Fund Improvements...... 12-9
12.2 Traffic Operations Changes: 20 Cents per Mile, Project F-1 – Toll All Lanes of I-95 – Branford to Rhode Island State Line to Fund Improvements...... 12-10
12.3 Traffic Operations Changes: 30 Cents per Mile, Project F-1 – Toll All Lanes of I-95 – Branford to Rhode Island State Line to Fund Improvements...... 12-11
12.4 Annual Toll Revenue: 2008 Dollars, Project F-1 – Toll All Lanes of I-95 – Branford to Rhode Island State Line to Fund Improvements...... 12-12
12.5 Life-Cycle Toll Collection Costs, Concept F – Toll Individual Highways Needing New Capacity ...... 12-13
12.6 Illustrative Implementation Durations, Concept F – Toll Individual Highways Needing New Capacity...... 12-15
12.7 Environmental Impact Summary, Project F-1 – Toll All Lanes of I-95 – Branford to Rhode Island State Line to Fund Improvements ...... 12-18
12.8 Traffic Operations Changes: 10 Cents per Mile, Project F-2 – Toll All Lanes of I-84 – Waterbury to New York State Line to Fund Improvements ...... 12-22
12.9 Traffic Operations Changes: 20 Cents per Mile, Project F-2 – Toll All Lanes of I-84 – Waterbury to New York State Line to Fund Improvements ...... 12-23
12.10 Traffic Operations Changes: 30 Cents per Mile, Project F-2 – Toll All Lanes of I-84 – Waterbury to New York State Line to Fund Improvements ...... 12-24
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List of Tables (continued)
12.11 Annual Toll Revenue: 2008 Dollars, Project F-2 – Toll All Lanes of I-84 – Waterbury to New York State Line to Fund Improvements ...... 12-25
12.12 Environmental Summary, Project F-2 – Toll All Lanes of I-84 – Waterbury to New York State Line to Fund Improvements ...... 12-27
12.13 Forecast Annual Toll Revenue: 2008 Dollars, Project F3 – Projects F1 and F2 Combined...... 12-30
12.14 Financial Analysis of Concept F – Toll Individual Highways Needing New Capacity ...... 12-32
12.15 Annual Toll Revenue and Expense Estimates Concept F-1 – I-95 Tolling All Lanes (Millions of Year-of-Expenditure Dollars)...... 12-33
12.16 Annual Toll Revenue and Expense Estimates Concept F-2 – I-84 Tolling All Lanes (Millions of Year-of-Expenditure Dollars)...... 12-35
13.1 Per-Mile Tolls for Different Vehicle Classes, Concept G-1 –Toll All Limited Access Highways...... 13-5
13.2 Diversion to Non-Tolled Roads in 2015 and 2030 by Toll Levels, Concept G-1 – Toll All Limited Access Highways...... 13-6
13.3 Corridor Traffic Operational Impacts at Toll Level 2, Concept G-1 –Toll All Limited Access Highways...... 13-8
13.4 Toll Trips and Revenue Forecasts (in 2008 Dollars) for 2015 and 2030 by Study Corridors, Concept G-1 –Toll All Limited Access Highways...... 13-13
13.5 Life-Cycle Technology Costs, Concept G-1 – Toll All Limited Access Highways...... 13-15
13.6 Illustrative Implementation Durations, Concept G-1 – Toll All Limited Access Highways...... 13-16
13.7 Environmental Impact Summary, Concept G-1 – Toll All Limited Access Highways...... 13-19
13.8 Financial Analysis of Concept G-1 – Toll All Limited Access Highways...... 13-24
13.9 Annual Toll Revenue and Expense Estimates Concept G-1 – Tolling on Limited Access Highways (Millions of Year-of-Expenditure Dollars) ...... 13-25
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List of Tables (continued)
14.1 Financial Analysis of Concept G-2 – Statewide Tolling on All Vehicle Miles...... 14-5
14.2 Annual Toll Revenue and Expense Estimates Concept G-2 – VMT Tolling with Gas Tax (Millions of Year-of-Expenditure Dollars)...... 14-6
14.3 Annual Toll Revenue and Expense Estimates Concept G-2 – VMT Tolling without Gas Tax (Millions of Year-of-Expenditure Dollars) ...... 14-7
15.1 Target V/C Ratios for Congestion Pricing in I-95/Route 15 Corridor, Concept H – Congested Corridor Tolling...... 15-5
15.2 Tolled and Diverted Traffic on I-95, Concept H – Congested Corridor Tolling...... 15-7
15.3 Tolled and Diverted Traffic on Route 15, Concept H – Congested Corridor Tolling 15-9
15.4 Impact of Congestion Tolls on V/C Ratios: 2015 and 2030, Concept H – Congested Corridor Tolling ...... 15-11
15.5 Annual Toll Revenue: 2015 and 2030, Concept H – Congested Corridor Tolling..... 15-14
15.6 Life-Cycle Toll Collection Costs, Concept H – Congested Corridor Tolling ...... 15-15
15.7 Environmental Impact Summary, Concept H – Congested Corridor Tolling...... 15-17
15.8 Financial Analysis of Concept H – Congested Corridor Tolling...... 15-21
15.9 Annual Toll Revenue and Expense Estimates Concept H: Congested Pricing Only (Millions of Year-of-Expenditure Dollars) ...... 15-22
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List of Figures
3.1 All Electronic Tolling (AET) Operational Program Functions ...... 3-2
3.2 Open Trip and Closed Tolling Concepts ...... 3-7
3.3 Processing Different Payment Options...... 3-9
3.4 Processing Prepaid Accounts ...... 3-16
3.5 Processing Postpay Accounts...... 3-16
3.6 Processing One-Off Payments...... 3-17
3.7 Processing One-Off Payments After Toll Is Accrued...... 3-17
3.8 Collecting Unpaid Tolls ...... 3-19
3.9 Basic Program, Roadside Components, and External Services Diagram ...... 3-20
3.10 Roadside Components of AET Systems ...... 3-21
3.11 Toll Program Control Operations...... 3-24
7.1 Concept A – New Toll Express Lanes ...... 7-2
7.2 Illustrative Implementation Schedule, Concept A – Express Toll Lanes ...... 7-15
7.3 Environmental Impact Locations, Project A-1 – Express Toll Lanes: I-95 – Branford to Rhode Island...... 7-16
7.4 Environmental Impact Locations, Project A-2 – Express Toll Lanes: I-84 – Waterbury to New York State Line ...... 7-22
8.1 Concept B – Border Tolling at Major Highways...... 8-2
8.2 Illustrative Implementation Schedule, Concept B – Border Tolling...... 8-21
8.3 Environmental Impact Locations, Concept B – Border Tolling ...... 8-23
9.1 Concept C – Toll Trucks on Limited Access Highways ...... 9-2
9.2 Illustrative Implementation Schedule, Concept C – Toll Trucks on Limited Access Highways...... 9-18
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List of Figures (continued)
9.3 Environmental Impact Locations, Concept C – Toll Trucks on Limited Access Highways ...... 9-22
10.1 Concept D – HOV to HOT Lane Conversion ...... 10-2
10.2 Existing I-91 HOV Lanes...... 10-4
10.3 Existing HOV Lanes on I-84 ...... 10-5
10.4 Average Hourly Distribution of Vehicles, I-91 Southbound HOV Lane Between Exits 33 and 34 ...... 10-6
10.5 Average Hourly Distribution of Vehicles, I-91 Northbound HOV Lane Between Exits 33 and 34 ...... 10-7
10.6 Average Hourly Distribution of Vehicles, I-84 Westbound HOV Lane East of HOV On Ramp from I-384...... 10-7
10.7 Average Hourly Distribution of Vehicles, I-84 Eastbound HOV Lane East of HOV Off Ramp from I-384...... 10-8
10.8 Illustrative Implementation Schedule, Project D-1 – Interstate 84 HOT Lane ...... 10-18
10.9 Environmental Impact Locations, Project D-1 – Interstate 84 HOT Lane ...... 10-20
10.10 Environmental Impact Locations, Project D-2 – Interstate 91 HOT Lane ...... 10-26
11.1 Concept E – Convert Highway Shoulders to HOT Lanes ...... 11-3
12.1 Concept F – Toll Individual Highways Needing New Capacity ...... 12-2
12.2 Illustrative Implementation Schedule, Concept F – Toll Individual Highways Needing New Capacity ...... 12-16
12.3 Environmental Impact Locations, Project F-1 –Toll All Lanes of I-95 – Branford to Rhode Island State Line to Fund Improvements...... 12-19
12.4 Environmental Impact Locations, Project F-2 – Toll All Lanes of I-84 – Waterbury to New York State Line to Fund Improvements ...... 12-29
13.1 Concept G-1 – Toll All Limited Access Highways ...... 13-2
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List of Figures (continued)
13.2 Illustrative Implementation Schedule, Concept G-1 – Toll All Limited Access Highways...... 13-17
13.3 Environmental Impact Locations, Concept G-1 – Toll All Limited Access Highways...... 13-21
14.1 Concept G-2 – Statewide Tolling on All Vehicle Miles Traveled...... 14-2
15.1 Congested Corridor Tolling, Illustrative Location in Southwest Connecticut...... 15-2
15.2 Traffic Volumes: 6:00 a.m. to 8:00 p.m. I-95, CT Route 15, and U.S. Route 1 in SW Corridor, Concept H – Congested Corridor Tolling ...... 15-4
15.3 Two-Way Traffic Volumes (2007): U.S. Route 1 ...... 15-12
15.4 Environmental Impact Locations, Concept H – Congested Corridor Tolling ...... 15-18
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Preface
The final documentation for the Connecticut Electronic Tolling and Congestion Pricing Study has three components:
• Volume 1: Summary of Findings, which presents key material on tolling and conges- tion pricing and summarizes the findings of the analysis of electronic tolling and congestion pricing options in Connecticut.
• Volume 2: Background Report, which provides details relating to implementation considerations of electronic tolling and road pricing in general on a variety of topics, as well as detailed technical analysis of options in Connecticut.
• Volume 3: Technical Appendices, which provides further detail on methodology and results.
This is Volume 2: Background Report
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1.0 Introduction