Connecticut Electronic Tolling and Congestion Pricing Study final report prepared for Connecticut Transportation Strategy Board Connecticut Office of Policy and Management prepared by Cambridge Systematics, Inc. with Urbitran, a division of DMJM Harris/AECOM IBI Group Fitzgerald & Halliday, Inc. Sam Schwartz, PLLC April 2009 www.camsys.com Connecticut Electronic Tolls and Congestion Pricing Study – Final Report Preface The final documentation for the Connecticut Electronic Tolling and Congestion Pricing Study is composed of three volumes: • 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 con- gestion 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. Cambridge Systematics, Inc. Connecticut Electronic Tolls and Congestion Pricing Study – Final Report Table of Contents VOLUME 1: SUMMARY OF FINDINGS 1.0 Background and Concepts .......................................................................................... 1-1 1.1 Brief History of Tolling in the United States ..................................................... 1-4 1.2 Potential Policy Drivers for Electronic Tolling and Congestion Pricing....... 1-5 1.3 Funding Motivation.............................................................................................. 1-5 2.0 Concepts and Criteria .................................................................................................. 2-1 2.1 Electronic Tolling and Congestion Pricing Concepts Studied........................ 2-1 2.2 Evaluation Criteria................................................................................................ 2-2 3.0 Major Findings.............................................................................................................. 3-1 4.0 Summary of Electronic Tolling and Congestion Pricing Concept Evaluations 4-1 Concept A: Creation of New Tolled Express Lanes ................................................ 4-3 Concept B: Border Tolling at Major Highways ........................................................ 4-5 Concept C: Toll Trucks On Limited Access Highways........................................... 4-7 Concept D: HOV to HOT Lane Conversion ............................................................. 4-9 Concept E: Convert Highway Shoulders to HOT Lanes ........................................ 4-11 Concept F: Toll Individual Highways Needing New Capacity............................. 4-13 Concept G-1: Toll All Limited Access Highways .................................................... 4-15 Concept G-2: Tax Vehicle Miles Traveled................................................................. 4-17 Concept H: Congested Corridor Tolling................................................................... 4-19 Cambridge Systematics, Inc. i Connecticut Electronic Tolls and Congestion Pricing Study – Final Report Table of Contents (continued) VOLUME 2: BACKGROUND REPORT 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............................................................................................. 2-9 2.4 Legal and Institutional Aspects of Enforcement............................................... 2-9 2.5 Institutional Considerations................................................................................ 2-11 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 ii Cambridge Systematics, Inc. Connecticut Electronic Tolls and Congestion Pricing Study – Final Report Table of Contents (continued) VOLUME 2: BACKGROUND REPORT (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