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NATIONAL
NCHRP REPORT 694
COOPERATIVE
HIGHWAY
RESEARCH
PROGRAM
Evaluation and Performance
Measurement of Congestion
Pricing Projects
OCR for page R2
TRANSPORTATION RESEARCH BOARD 2011 EXECUTIVE COMMITTEE*
OFFICERS
CHAIR: Neil J. Pedersen, Administrator, Maryland State Highway Administration, Baltimore
VICE CHAIR: Sandra Rosenbloom, Professor of Planning, University of Arizona, Tucson
EXECUTIVE DIRECTOR: Robert E. Skinner, Jr., Transportation Research Board
MEMBERS
J. Barry Barker, Executive Director, Transit Authority of River City, Louisville, KY
Deborah H. Butler, Executive Vice President, Planning, and CIO, Norfolk Southern Corporation, Norfolk, VA
William A.V. Clark, Professor, Department of Geography, University of California, Los Angeles
Eugene A. Conti, Jr., Secretary of Transportation, North Carolina DOT, Raleigh
James M. Crites, Executive Vice President of Operations, Dallas-Fort Worth International Airport, TX
Paula J. Hammond, Secretary, Washington State DOT, Olympia
Michael W. Hancock, Secretary, Kentucky Transportation Cabinet, Frankfort
Adib K. Kanafani, Cahill Professor of Civil Engineering, University of California, Berkeley
Michael P. Lewis, Director, Rhode Island DOT, Providence
Susan Martinovich, Director, Nevada DOT, Carson City
Michael R. Morris, Director of Transportation, North Central Texas Council of Governments, Arlington
Tracy L. Rosser, Vice President, Regional General Manager, Wal-Mart Stores, Inc., Mandeville, LA
Steven T. Scalzo, Chief Operating Officer, Marine Resources Group, Seattle, WA
Henry G. (Gerry) Schwartz, Jr., Chairman (retired), Jacobs/Sverdrup Civil, Inc., St. Louis, MO
Beverly A. Scott, General Manager and CEO, Metropolitan Atlanta Rapid Transit Authority, Atlanta, GA
David Seltzer, Principal, Mercator Advisors LLC, Philadelphia, PA
Lawrence A. Selzer, President and CEO, The Conservation Fund, Arlington, VA
Kumares C. Sinha, Olson Distinguished Professor of Civil Engineering, Purdue University, West Lafayette, IN
Thomas K. Sorel, Commissioner, Minnesota DOT, St. Paul
Daniel Sperling, Professor of Civil Engineering and Environmental Science and Policy; Director, Institute of Transportation Studies; and Interim
Director, Energy Efficiency Center, University of California, Davis
Kirk T. Steudle, Director, Michigan DOT, Lansing
Douglas W. Stotlar, President and CEO, Con-Way, Inc., Ann Arbor, MI
C. Michael Walton, Ernest H. Cockrell Centennial Chair in Engineering, University of Texas, Austin
EX OFFICIO MEMBERS
Peter H. Appel, Administrator, Research and Innovative Technology Administration, U.S.DOT
J. Randolph Babbitt, Administrator, Federal Aviation Administration, U.S.DOT
Rebecca M. Brewster, President and COO, American Transportation Research Institute, Smyrna, GA
Anne S. Ferro, Administrator, Federal Motor Carrier Safety Administration, U.S.DOT
LeRoy Gishi, Chief, Division of Transportation, Bureau of Indian Affairs, U.S.DOT
John T. Gray, Senior Vice President, Policy and Economics, Association of American Railroads, Washington, DC
John C. Horsley, Executive Director, American Association of State Highway and Transportation Officials, Washington, DC
David T. Matsuda, Deputy Administrator, Maritime Administration, U.S.DOT
Victor M. Mendez, Administrator, Federal Highway Administration, U.S.DOT
William W. Millar, President, American Public Transportation Association, Washington, DC
Tara O'Toole, Under Secretary for Science and Technology, U.S. Department of Homeland Security, Washington, DC
Robert J. Papp (Adm., U.S. Coast Guard), Commandant, U.S. Coast Guard, U.S. Department of Homeland Security, Washington, DC
Cynthia L. Quarterman, Administrator, Pipeline and Hazardous Materials Safety Administration, U.S.DOT
Peter M. Rogoff, Administrator, Federal Transit Administration, U.S.DOT
David L. Strickland, Administrator, National Highway Traffic Safety Administration, U.S.DOT
Joseph C. Szabo, Administrator, Federal Railroad Administration, U.S.DOT
Polly Trottenberg, Assistant Secretary for Transportation Policy, U.S.DOT
Robert L. Van Antwerp (Lt. Gen., U.S. Army), Chief of Engineers and Commanding General, U.S. Army Corps of Engineers, Washington, DC
Barry R. Wallerstein, Executive Officer, South Coast Air Quality Management District, Diamond Bar, CA
*Membership as of June 2011.
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NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
NCHRP REPORT 694
Evaluation and Performance
Measurement of Congestion
Pricing Projects
Benjamin G. Perez
Reno Giordano
PARSONS BRINCKERHOFF, INC.
New York, NY
Heidi Stamm
HS PUBLIC AFFAIRS
Bainbridge Island, WA
Subscriber Categories
Finance · Highways · Operations and Traffic Management
Research sponsored by the American Association of State Highway and Transportation Officials
in cooperation with the Federal Highway Administration
TRANSPORTATION RESEARCH BOARD
WASHINGTON, D.C.
2011
www.TRB.org
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NATIONAL COOPERATIVE HIGHWAY NCHRP REPORT 694
RESEARCH PROGRAM
Systematic, well-designed research provides the most effective Project 08-75
approach to the solution of many problems facing highway ISSN 0077-5614
administrators and engineers. Often, highway problems are of local ISBN 978-0-309-21361-5
interest and can best be studied by highway departments individually Library of Congress Control Number 2011939451
or in cooperation with their state universities and others. However, the © 2011 National Academy of Sciences. All rights reserved.
accelerating growth of highway transportation develops increasingly
complex problems of wide interest to highway authorities. These
problems are best studied through a coordinated program of COPYRIGHT INFORMATION
cooperative research.
Authors herein are responsible for the authenticity of their materials and for obtaining
In recognition of these needs, the highway administrators of the written permissions from publishers or persons who own the copyright to any previously
American Association of State Highway and Transportation Officials published or copyrighted material used herein.
initiated in 1962 an objective national highway research program Cooperative Research Programs (CRP) grants permission to reproduce material in this
employing modern scientific techniques. This program is supported on publication for classroom and not-for-profit purposes. Permission is given with the
understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA,
a continuing basis by funds from participating member states of the
FMCSA, FTA, or Transit Development Corporation endorsement of a particular product,
Association and it receives the full cooperation and support of the method, or practice. It is expected that those reproducing the material in this document for
Federal Highway Administration, United States Department of educational and not-for-profit uses will give appropriate acknowledgment of the source of
any reprinted or reproduced material. For other uses of the material, request permission
Transportation.
from CRP.
The Transportation Research Board of the National Academies was
requested by the Association to administer the research program
because of the Board's recognized objectivity and understanding of
NOTICE
modern research practices. The Board is uniquely suited for this
purpose as it maintains an extensive committee structure from which The project that is the subject of this report was a part of the National Cooperative Highway
Research Program, conducted by the Transportation Research Board with the approval of
authorities on any highway transportation subject may be drawn; it the Governing Board of the National Research Council.
possesses avenues of communications and cooperation with federal,
The members of the technical panel selected to monitor this project and to review this
state and local governmental agencies, universities, and industry; its report were chosen for their special competencies and with regard for appropriate balance.
relationship to the National Research Council is an insurance of The report was reviewed by the technical panel and accepted for publication according to
procedures established and overseen by the Transportation Research Board and approved
objectivity; it maintains a full-time research correlation staff of
by the Governing Board of the National Research Council.
specialists in highway transportation matters to bring the findings of
The opinions and conclusions expressed or implied in this report are those of the
research directly to those who are in a position to use them. researchers who performed the research and are not necessarily those of the Transportation
The program is developed on the basis of research needs identified Research Board, the National Research Council, or the program sponsors.
by chief administrators of the highway and transportation departments The Transportation Research Board of the National Academies, the National Research
and by committees of AASHTO. Each year, specific areas of research Council, and the sponsors of the National Cooperative Highway Research Program do not
needs to be included in the program are proposed to the National endorse products or manufacturers. Trade or manufacturers' names appear herein solely
because they are considered essential to the object of the report.
Research Council and the Board by the American Association of State
Highway and Transportation Officials. Research projects to fulfill these
needs are defined by the Board, and qualified research agencies are
selected from those that have submitted proposals. Administration and
surveillance of research contracts are the responsibilities of the National
Research Council and the Transportation Research Board.
The needs for highway research are many, and the National
Cooperative Highway Research Program can make significant
contributions to the solution of highway transportation problems of
mutual concern to many responsible groups. The program, however, is
intended to complement rather than to substitute for or duplicate other
highway research programs.
Published reports of the
NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
are available from:
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Business Office
500 Fifth Street, NW
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and can be ordered through the Internet at:
http://www.national-academies.org/trb/bookstore
Printed in the United States of America
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The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific
and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the
authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal
government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel
organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the
National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also
sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior
achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members
of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the
responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government
and, on its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the
Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of
science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in
accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the
National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and
the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine.
Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council.
The Transportation Research Board is one of six major divisions of the National Research Council. The mission of the Transporta-
tion Research Board is to provide leadership in transportation innovation and progress through research and information exchange,
conducted within a setting that is objective, interdisciplinary, and multimodal. The Board's varied activities annually engage about
7,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia,
all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal
agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individu-
als interested in the development of transportation. www.TRB.org
www.national-academies.org
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COOPERATIVE RESEARCH PROGRAMS
CRP STAFF FOR NCHRP REPORT 694
Christopher W. Jenks, Director, Cooperative Research Programs
Crawford F. Jencks, Deputy Director, Cooperative Research Programs
Christopher Hedges, Senior Program Officer
Danna Powell, Senior Program Assistant
Eileen P. Delaney, Director of Publications
Hilary Freer, Senior Editor
NCHRP PROJECT 08-75 PANEL
Field of Transportation Planning--Area of Forecasting
Kenneth R. Buckeye, Minnesota DOT, St. Paul, MN (Chair)
Daniela Bremmer, Washington State DOT, Olympia, WA
Adjo A. Amekudzi, Georgia Institute of Technology, Atlanta, GA
Monica Kress, California DOT, Sacramento, CA
Daniel Lamers, North Central Texas Council of Governments, Arlington, TX
Cailein MacDougall, New York State Thruway Authority, Albany, NY
Kofi Wakhisi, Atlanta Regional Commission, Atlanta, GA
Patrick T. DeCorla-Souza, FHWA Liaison
Jane Lappin, Research and Innovative Technology Administration Liaison
Martine A. Micozzi, TRB Liaison
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FOREWORD
By Christopher Hedges
Staff Officer
Transportation Research Board
These guidelines are intended for transportation practitioners involved in the planning,
design, and operation of congestion-pricing projects. They will help agencies select or
develop measures to evaluate these projects, collect the necessary data, track performance,
and communicate the results to decision makers, users, and the general public. These guide-
lines will be valuable to all agencies who are using or considering congestion pricing to
manage their roadway capacity.
Highway traffic congestion is one of the biggest challenges facing transportation agencies
today. Congestion will likely become even worse as demand for highway facilities increases
and capacity remains limited. Increasing peak times, loss of productivity during congested
periods, and underutilization of existing capacity during off-peak periods are some of the
current system management challenges.
There is a growing national momentum within government transportation agencies to
explore congestion pricing and evaluate its performance. Some states are considering or
implementing congestion pricing projects such as High-Occupancy Toll (HOT) lanes. In
addition, U.S. DOT issued a set of national strategies to reduce congestion that includes
pricing concepts. A key element of this strategy is the development of Urban Partnership
Agreement (UPA) and Congestion Reduction Demonstration (CRD) programs, which
include tolling, transit, telecommuting, technology, and operations components.
Congestion-pricing options face considerable political and public pressures. Trans-
portation organizations need assistance in developing and tracking measurements for
assessing the benefits and impacts of congestion-pricing strategies. Effective performance
assessment of pricing projects is essential at the planning, development, deployment, oper-
ation, and evaluation stages. Currently, there is a lack of knowledge on how to develop
appropriate performance measurements, measure and analyze data, and communicate the
results to the public.
Under NCHRP Project 08-75 "Guidelines for Evaluation and Performance Measurement
of Congestion Pricing Projects," a research team led by Parsons Brinckerhoff, Inc., developed
case studies of 12 congestion-pricing projects. For each case study, the team summarizes the
performance measures used to evaluate the results of the project. The results were used to
develop guidelines that can be used by agencies to evaluate their congestion-pricing projects,
enabling them to select appropriate performance measures for the goals of their own project,
collect the right data, evaluate performance, and communicate results. The 12 case studies
are included as appendices to the guidelines.
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CONTENTS
1 Summary
3 Chapter 1 Introduction
3 1.1 Why These Guidelines?
5 1.2 Types of Congestion Pricing
7 1.3 Context for Congestion Pricing Projects and Their Evaluation
12 Chapter 2 Methodology
12 2.1 Compiling the Guidelines
15 2.2 State of the Practice and Beyond
18 Chapter 3 Guidelines for Evaluation and Performance
Measurement of Congestion Pricing Projects
18 3.1 Initiating Performance Measurement Programs
25 3.2 Performance Measurement for Variably Priced Managed Lanes
40 3.3 Performance Measurement for Toll Facilities with Variable
Pricing
51 3.4 Performance Measurement for Cordon and Area Pricing Projects
66 Chapter 4 Integrating Performance Evaluation
and Measurement with Public Outreach
66 4.1 Advantages and Drawbacks of Including Performance Measures in
the Public Outreach Process and How Existing Facility Character-
istics Shape a Future Facility Vision
70 4.2 Market Research--Preparing for the Congestion Pricing
Conversation
73 4.3 Constituency Building through Public Education and Outreach
81 Chapter 5 Conclusions
81 5.1 Providing a Framework to Approach Performance Measurement
for Congestion Pricing Projects
83 5.2 Outreach and Communication--Day-of-Opening and Beyond
85 Abbreviations, Acronyms, and Initialisms
87 Key Terms
89 Appendix A Congestion Pricing Case Studies
Note: Many of the photographs, figures, and tables in this report have been converted from color to grayscale
for printing. The electronic version of the report (posted on the Web at www.trb.org) retains the color versions.
