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Evaluation and Performance Measurement of Congestion Pricing Projects (2011)

Chapter: Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach

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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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Suggested Citation:"Chapter 4 - Integrating Performance Evaluation and Measurement with Public Outreach." National Academies of Sciences, Engineering, and Medicine. 2011. Evaluation and Performance Measurement of Congestion Pricing Projects. Washington, DC: The National Academies Press. doi: 10.17226/13648.
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To date, interest in performance measures for facilities with congestion pricing has been relegated to technical discussion between planners and engineers tasked with developing these facilities. From a public education perspective, this is unfortunate because it is often decisions made on individual performance element thresholds that ultimately will drive positive (or nega- tive) public opinion on a project. For example, the top two reasons why a customer will consider using a congestion-priced facility—travel-time savings and trip reliability—are performance based. For the public projects operating or being considered, key performance targets are often prescribed by the major funding proponent, FHWA. For example, a mandate of maintaining an average travel speed of 45 mph at least 90 percent of the time on high-occupancy vehicle (HOV) lanes and priced high-occupancy toll (HOT) lanes is a common FHWA-established threshold performance standard that drives many supporting operating decisions. In the case of the conversion of an HOV facility to HOT operation, it may be necessary to make radical changes to the existing operations in order to meet the 45-mph speed mandate fol- lowing the conversion. Changes may involve charging users who previously had no-toll access to the managed lanes, altering or closing some restricted lane access or exit locations, and/or requiring transponders or registration for users who used to be able to make a spontaneous choice to use the facility. These types of changes all affect the public’s positive perceptions of congestion-priced facilities as an acceptable travel option. In addition, congestion pricing involves the exchange of “money for service,” which introduces associated expectations about how much money will be collected, who gets to keep it, and how it will be spent. In the face of public acceptance challenges, documenting the benefits of congestion pricing is vital to securing public support. 4.1 Advantages and Drawbacks of Including Performance Measures in the Public Outreach Process and How Existing Facility Characteristics Shape a Future Facility Vision Using performance measures as a basis for decisions about congestion-priced facility operations can have three major benefits in the public affairs arena: • Performance monitoring presents existing conditions scientifically. Presenting current, accu- rate information on existing conditions to the public helps stakeholders to understand why change is necessary. It is difficult to convince people to support a solution if they do not believe there is a problem. For example, many HOV lanes experience periods of excessive demand, which results in the same congestion these lanes are supposed to offer an alternative to—addressing this 66 C H A P T E R 4 Integrating Performance Evaluation and Measurement with Public Outreach

condition first means sharing information about why steps such as pricing need to be considered to regain lost benefits. • Performance monitoring establishes quantifiable benefits and tradeoffs resulting from a congestion-priced facility. Sharing the anticipated performance of the congestion-priced facility builds public trust and confidence. Performance metrics should demonstrate how trav- elers, communities, businesses, and environmental and other special interests will be better off as a result of the priced facility. • Performance monitoring puts the focus on the project, not the personalities. Using exist- ing and desired performance metrics as the blueprint for operational changes helps to ensure a decision-making process separated from conflicting political and/or special interests. For example, converting an existing HOV lane to a congestion-priced facility may cause dissat- isfaction among current HOV customers who will no longer be able to use the facility with- out paying a fee; however, maintaining free use or increasing occupancy requirements may have quantifiable benefits to the corridor and region. HOV customers need to be persuaded that a change in facility operations will be to their benefit. One method to achieve that out- come is to acknowledge the poor existing performance of “their” lane/s and to share a vision of what future travel can be like as evidenced by anticipated performance. Although a win- win outcome may not be possible for all affected customers, an outcome that is both rational and objective and founded on the region’s adopted goals and objectives provides a good basis for constituent support. At the same time, using performance standards to support the need for change presents some risks: • Performance monitoring fosters closer scrutiny of individual performance standards and outcomes. Sharing existing and anticipated performance means that such data is no longer reserved for a select few or those “in the know.” Extra care needs to be taken to ensure that existing conditions data and anticipated performance information are adequately collected from reliable sources, checked for accuracy, and vetted for review prior to release. To secure and maintain the public’s confidence, project officials need to be well versed in the details of how and when existing condition information was gathered and how anticipated condition performance measures are calculated. • Performance monitoring increases pressure to prepare alternative actions in case desired outcomes do not materialize. When there is transparency and full disclosure about future facility expectations—as in the case of fully vetted performance measures—there is always the increased pressure to have back-up strategies in place if anticipated results do not materialize after the project has been implemented. Although some level of back-up plan should always be prepared, there will likely be more public scrutiny of individual performance measures as a result of increased prominence during the outreach and education process. Although converting a roadway facility to a more restrictive use may technically be the most straightforward and simple way to introduce pricing, it is a challenge from a public perspec- tive. If the introduction of pricing has little effect or requires little change or action on the part of the current facility users, then there will likely be relatively little resistance to the change. However, as the change element—or action—increases, then the pushback or reaction will likely increase as well. In the United States, almost all variably priced managed lane facilities began their “restricted access lives” as HOV lanes, or at a minimum offered HOV preferential access. With the exception of I-95 in Miami, existing HOV users were required to make rela- tively minor changes to stay in compliance as a result of the introduction of pricing. Table 4-1 documents the changes in HOV policies that occurred with the introduction of variable pric- ing on the seven HOT lane facilities for which case studies were prepared as part of this research effort. Integrating Performance Evaluation and Measurement with Public Outreach 67

68 Evaluation and Performance Measurement of Congestion Pricing Projects I-25 Express Lanes Denver, CO Two-lane reversible facility 2+ HOVs and registered hybrids allowed access Motorcycles allowed access Under 10% violation rate 6-min bus headways from park-and- ride lots No capacity added—conversion required operational changes only No occupancy requirement changes HOVs and hybrids not required to carry transponder but must use a “declaration” lane at the toll gantry mid-way down the project Free motorcycle access continued SOVs pay toll for access No trucks allowed (same as before conversion) Project HOV Operations Before Conversion HOV Operations After Conversion I-95 Express Lanes Miami, FL One-lane directional facility 2+ HOVs and hybrids allowed access As high as 80% violation rate Limited transit service Added one new lane of capacity and converted existing HOV lane to comprise the two-lane directional priced facility (4 lanes total) Only 3+ HOV with prior registration may use priced lanes at no charge SOV hybrid users must have a FL State Decal and an I-95 Express decal to use lane at no charge SOVs, non-registered 3+ HOVs, non- registered hybrids, and HOV2 pay toll No trucks allowed (same as before conversion) I-10 “Katy Freeway” Managed Lanes Houston, TX Previous single-reversible HOV lane operated with 3+ restriction in peak hours and 2+ outside the peak for most of the daytime hours Built two new managed lanes in each direction 2+ HOV and motorcycles travel for free 5-11 am and 2-8 pm. Required to pay at all other times HOVs not required to carry a transponder but must enter the facility through “declaration” lane SOVs, hybrids, and small commercial vehicles allowed access for toll Minnesota “MnPass Lanes” I-394 I-35W Minneapolis, MN 2+ HOV and motorcycles allowed access I-394: Two-lane reversible and single-lane directional facility I-35W: limited single directional lanes Significant transit service I-394: No capacity added—conversion required operational changes only I-35W: Freeway modified and reconstructed with new capacity designated as priced lanes 2+ HOV travel at no charge HOVs not required to carry transponder Free motorcycle access continued Hybrids and SOVs allowed access for toll No trucks allowed SR-91 Express Lanes Orange County, CA Opened in 1995 as first privately funded tollroad built in US in 1940s. Project did not exist as an HOV lane as it opened as a priced lane under private ownership Purchased by Orange County Transp. Authority in 2003 Generally allowed 3+HOVs with transponders free use No trucks Two-lane directional facility (4 lanes total) Limited ingress and egress points only on each end HOV3 motorists are typically allowed to use the facility free of charge, with the exception of the p.m. peak period from 4:00 to 6:00 p.m. eastbound, when they are required to carry a transponder and pay 50 percent of the established toll All other users pay toll via transponder Limited transit service No trucks allowed Table 4-1. Characteristics of HOV operations before and after HOT conversion.

As shown in Table 4-1, most HOV to HOT conversions have required very little change on the part of the existing HOV customer. For the most part, access to new customer groups was added, but not at the expense of removing benefits to existing HOV users. Future projects, however, will likely require more significant operational changes in order to ensure operational benefits and achieve financial objectives. Fewer and fewer HOV lanes have excess capacity to “sell,” so a con- version to a congestion-priced facility will require adding capacity and/or changing access require- ments. Public education and outreach will become more important as the challenges facing HOV- to-priced-lane conversion increase. When considering the conversion of an existing free-of-charge facility to one where pricing is an element for access, establishing and sharing “baseline” conditions is essential to beginning to secure support for changes being considered. Public buy-in on the legitimacy and accuracy of existing conditions is essential to the project’s ability to garner support for change. Undertaking market research activities, such as those described in Section 4.2, will document where public opinion and reality intersect and where they diverge. Ongoing education and outreach activities should focus on those areas of divergence. Integrating Performance Evaluation and Measurement with Public Outreach 69 I-15 Express Lanes San Diego, CA 2+ HOV, hybrids with HOV Access Clean Air decal and motorcycles allowed access 8 mile 2-lane reversible facility Limited access on each end Limited transit service No capacity added initially – conversion required operational changes only No occupancy requirement changes All HOVs and hybrids with HOV Access Clean Air decals are not required to carry transponders Free motorcycle access continued SOVs pay toll for access No trucks allowed Project has since been expanded and lengthened to a facility that can operate as 3-1, 2-2 or 1-3 directional configuration SR-167 HOT Lanes Seattle, WA 2+ HOVs and motorcycles allowed access 11 mile single-lane directional facility Only two adjacent general-purpose lanes in each direction Unlimited access locations to HOV lane Limited transit service No capacity added – conversion required operational changes only No occupancy requirement changes HOVs not required to carry transponders Free motorcycle access continued SOVs and hybrids pay toll for access Access to HOT lane at designated locations only No trucks allowed I-15 Express Lanes Salt Lake City, UT 2+ HOV, hybrids with decals and motorcycles allowed access Single directional lanes in both directions Unlimited access Limited transit service Started with decal program to registered SOVs willing to pay $50/month for unlimited use, transitioning to toll for SOVs with transponders No capacity added – conversion required operational changes only No occupancy requirement changes All HOVs and hybrids are not required to carry transponders Free motorcycle access continued SOVs pay toll for access No trucks allowed No transit service changes Project HOV Operations Before Conversion HOV Operations After Conversion Table 4-1. (Continued).

4.2 Market Research—Preparing for the Congestion Pricing Conversation How outreach and education are managed during the very early stages of considering the use of congestion pricing may have more effect on ultimate public acceptance than at any other point in the overall planning and implementation process. In terms of outreach and education, the ini- tial outreach efforts focus on market research—the gathering and documenting of attitudes and opinions about existing traffic/freeway conditions and knowledge of congestion pricing. These very targeted initial outreach activities will (1) highlight areas of agreement, disagreement, and misunderstanding and (2) provide the messaging template for future education and outreach actions. The information secured from market research should guide the technical team in envi- sioning a congestion-priced facility that meets project goals and objectives, satisfies the public’s travel desires, and mitigates and/or minimizes documented objections to change. In the case of converting HOV lanes to priced operations, pricing should be explored because the performance of the existing HOV facility is failing or not fully meeting expectations in one or more categories. Overcrowding, “empty lane syndrome,” or high violation rates are among the most obvious reasons for the general public in considering a change in operations. Docu- menting the existing attitudes and opinions of various market groups on the performance of an HOV lane will (1) help project sponsors identify those areas of most and least satisfaction and (2) guide the planning team as they consider operational changes. Generally, it is best to refrain from promoting a specific congestion pricing concept at this stage. Rather, this is the time to determine prevailing attitudes, opinions, and beliefs around which the education and promotion strategy for congestion pricing will need to be crafted. Documenting inaccurate perceptions is as important as noting areas of agreement. As described below and shown in Table 4-2, many different research tools are available for elic- iting information about attitudes; each has advantages and drawbacks. Although the information provided here and in the accompanying table is not exhaustive, the approaches summarized have proven most useful in planning and evaluating priced facilities from a public perspective. 4.2.1 Focus Groups Focus groups are used to gather qualitative information about perceptions of an idea or prod- uct. Small groups (usually 8–12 people) discuss topics under the guidance of a trained moderator. Focus groups are useful for sampling traveler opinions and attitudes regarding existing HOV lane performance, as well as testing new pricing concepts and exploring concerns and expectations in some depth. Focus groups are relatively small and so are not designed to provide precise statistical quan- tification of the issues under discussion; rather, focus groups are designed to explore key issues in greater depth and highlight related attitudes and convictions. The insights obtained through focus group research discussion can be applied to developing formal surveys that will permit statistical quantification of key issues. Focus groups can be used to pre-test congestion pricing marketing messages, probe aware- ness of existing priced facilities, sample driver opinions and attitudes about congestion pricing, explore public concerns and convictions, identify and prioritize performance measures, and quantify performance acceptability. Focus groups should include corridor drivers, employee organization representatives, carpoolers and transit users, community leaders, and survey respondents. 70 Evaluation and Performance Measurement of Congestion Pricing Projects

Integrating Performance Evaluation and Measurement with Public Outreach 71 Research Tool Advantages Disadvantages Performance Monitoring Use Focus Groups $3,500-$7,000 per focus group Flexible Easy to assemble In-depth exploration of key issues Direct presentation of marketing concepts Freedom of interaction between facilitator and group One-way mirror/videotape viewable Not statistically precise Group may defer to loudest voice Good forum for give-and- take conversation about performance elements Secure input by market segment on desirable levels of performance Telephone Surveys $15-30/ completed survey Structured Relatively high response rates (40% - 60%) Encourage frankness Easy to screen for desired subpopulations Immediate responses Unlisted/cell phone numbers may add to sampling bias Unable to use visual aids Necessarily short Unable to interact freely with subject Can test awareness/ opinion about various performance measures Can cross reference performance measure(s) input and importance to individual demographic Mail-Back Driver Survey $10- $20/completed survey Automobile user population clearly defined Relatively low cost Can be statistically valid Distribution may disrupt traffic Relatively low response rate (20%-40%) can introduce non- respondent bias Privacy issues if license plates are used to generate sample Limited number of questions Response time drawn out Can match driver attitudes and opinions with facility performance at specific sites On-Board Survey $8 - $15/ completed survey Transit users population clearly defined Relatively low cost Can be statistically valid Population limited to transit users and biased toward frequent users Limited number of questions Ability to match respondent to transit route/corresponding facility performance Internet- Based Survey $4 -$10/ completed survey Can be developed and fielded quickly Can provide targeted information from a specific audience with appropriate fielding parameters (i.e.: fielded only at a specific worksite) Data can be skewed due to repeat participants Not statistically valid Limited to people with access to internet Can quickly provide “birds-eye view” feedback on performance attitudes and opinions Table 4-2. Advantages and disadvantages of market research tools and appropriate use. (continued on next page)

Although focus groups are relatively easy to manage, they yield subjective information and should not be used to support quantitative estimates or rank alternatives. They are most effective in exploring participants’ direct experiences and reactions. 4.2.2 Telephone Surveys Telephone surveys are conducted by trained interviewers, following a script, with a represen- tative sample population. Telephone surveys can be used to gather travel information and data, measure public opinions and attitudes, document awareness regarding existing priced facilities, record travel or mode shifts, and track project acceptance over time. A well-designed, carefully executed telephone survey can document public reaction to congestion pricing with statistical precision and provide insights into the relative effectiveness of different campaign messages and media channels. A minimum of 400 surveys is generally necessary to guarantee that measured responses are within 5 percent of statistical validity. If the survey sample is to be subdivided significantly dur- ing analysis, a larger sample size will likely be necessary. Uncertainties regarding appropriate sample size should be resolved by consulting a statistician. 4.2.3 Mail-Back Driver Surveys Mail-back driver surveys are short questionnaires either distributed to drivers at sampling sta- tions (such as freeway on-ramps) or mailed to registered owners of vehicles whose license plates were recorded using the project corridor. Mail-back surveys can be used to document attitudes, develop origin/destination data, and document mode and route shifts. Mail-back surveys can range from simple postcards designed to capture origin/destination data to more elaborate ques- tionnaires documenting awareness, attitude, commute choices, and demographic characteristics. Typically, the longer the questionnaire, the lower the response rate. The advantage of mail-back questionnaires is that they can be distributed directly to the driving population in the corridor(s) affected by the proposed congestion-pricing project. Although it is more difficult to track campaign awareness through mail-back surveys than through telephone surveys (unaided recall cannot be easily tested through mail-back survey, for instance) issues regarding perceptions, attitudes, and mode choice can be pursued equally well by mail or phone. 72 Evaluation and Performance Measurement of Congestion Pricing Projects Research Tool Advantages Disadvantages Performance Monitoring Use Executive Interviews $400 - $800/ interview Flexible Permits in-depth exploration of key issues with decision and opinion makers Allows freedom of interaction between interviewer and participant Supports exploration of institutional issues Establishes early project liaison/relationship between interview participant and project Not statistically valid Not representative of public at large Documents in-depth exploration of decisionmaker perceptions of existing performance and expectations of performance with pricing Identifies institutional challenges Documents knowledge and perception gaps and misinformation Table 4-2. (Continued).

4.2.4 On-Board Surveys On-board surveys involve distributing questionnaires to transit riders as they board the vehicle and either collecting when riders leave or asking the riders to return the surveys by mail. These sur- veys serve the same purpose for transit riders that mail-back surveys do for motorists traveling in the same corridor. 4.2.5 Internet-Based Surveys Internet-based surveys are becoming an increasing popular method to document attitudes and opinions. Typically, internet-based surveys, collected via a website or e-mail, allow for the creation of an unlimited number of questions. Many internet-based surveys customize the path respondents take to complete the survey by adding skip logic. This eliminates unnecessary con- fusion by skipping non-applicable questions and reduces “drop-outs” and overall frustration. Filtering and cross tabulating data are relatively quick and easy, as is developing custom charts for presentation. Results can be viewed “live” as they are recorded, responses can be browsed individually, and there is usually the opportunity to include open-ended comments. A disadvantage to using this type of survey is the difficulty with determining/controlling selection probabilities, which ultimately hinders quantitative analysis of data. Samples can be skewed toward a younger demographic compared to telephone interviews and, if not password protected, these types of surveys are easy to manipulate by completing multiple times to skew results. Internet-based surveys are not considered statistically reliable. 4.2.6 Executive Interviews Face-to-face interviews with representative opinion leaders and decision makers are often conducted to gauge congestion-pricing perceptions and institutional issue concerns held by key groups. Executive interviews, which usually last less than an hour, can help to heighten the visi- bility and viability of congestion-pricing as an effective traffic management and/or revenue gen- eration technique. Interview questions are designed to assess attitudes regarding various pricing scenarios and can help to identify where there is the greatest consensus and where there are the greatest differences. Interviews are also useful for establishing liaisons with business, environ- mental, and political leaders and for identifying opportunities for regional partnerships in build- ing community awareness and support for congestion pricing. Finally, executive interviews help to document the communication challenges foreseen by the interviewees and solicit participant assistance with facilitating broader communication of the study process and ultimate outcomes. Like focus groups, executive interviews provide in-depth insights, but have no statistical validity. Table 4-2 compares the relative costs and advantages and disadvantages of the different mar- ket research tools described above and identifies specific ways in which these tools can be used to obtain helpful information on public perception of issues germane to congestion pricing. 4.3 Constituency Building through Public Education and Outreach Sponsors of congestion pricing projects should use the information on public opinion gath- ered from their market research activities to refine their pricing concept and ultimately identify pricing policies that will appeal to the widest possible cross section of the public. Once a pricing concept has been selected, the focus of project outreach efforts changes to constituency build- ing. Constituency building is designed to secure broad-based support for the congestion-priced Integrating Performance Evaluation and Measurement with Public Outreach 73

74 Evaluation and Performance Measurement of Congestion Pricing Projects facility, recognizing that different issues or aspects of the pric- ing project will be of interest to different groups. In order to be most effective, constituency building activities must be tai- lored to different audiences or interest groups and focus on their areas of interest. Constituency groups with an interest in the use of congestion pricing may include the following: • Elected Officials • Transit Agencies and Advocates • Environmental Advocates • Employers • Public Agency Staff • The Media • Neighborhood Groups • Special Event Groups • Trucking Interests • Services Organizations • Taxi and Rental Car Industry • Retailers To arrive at a positive outcome, the constituency-building activities for congestion pricing projects should include the following steps: • Segment audiences by common interest and priority to the success of the facility • Indicate the outcome (action you want them to make, knowledge you need them to have) from the communication effort • Highlight the information that will be of most interest to that audience • Identify the most effective location to provide information– work, home, public facility, etc. • Determine the most effective communication tool (print, broadcast or web/social media advertising; direct mail, media relations, hotlines, displays, corridor tours, neighborhood or employment-site meetings, etc.) for those individuals and locations • Identify the important milestones in the communication process Education and outreach efforts offer multiple opportunities to build understanding and sup- port for performance measures as unbiased indicators of a priced facility’s success. Comparing and contrasting individual performance measures of the existing (and likely poorly functioning) facility to the anticipated performance of the newly priced facility during this phase helps to diffuse distrust of change as well as build accurate expectations for future operations. Individual performance data elements will have varying interests given the audience. When con- sidering the congestion pricing project, the outreach specialist will have to secure and translate individual performance data to help it become “real” to specific audiences. Sharing information on existing conditions as well as anticipated or actual outcome data will build interest and trust— and ultimately cultivate new congestion pricing champions. For example, the trucking industry Validating the Cost of Subsidizing a HOT Lane’s Operation One major challenge that the Washington State De- partment of Transportation (WSDOT) has faced with the SR 167 HOT Lanes demonstration is conveying to the public and elected officials that the Depart- ment’s intent in converting the HOV lanes to HOT operation was not to generate revenue but rather to manage the operation of its existing infrastruc- ture to improve traffic service and the overall effi- ciency of the SR 167 corridor. Despite this, the legis- lation enabling the SR 167 demonstration requires WSDOT to report on the “ability to finance im- provements and transportation services through tolls [collected on the SR 167 HOT lanes].” It is known, however, that the SR 167 HOT lanes operate at a deficit, with operating costs exceeding average monthly toll proceeds by a factor of nearly three. This has caused some to question the ration- ale behind the conversion. However, WSDOT’s modest investment of $60,000 per month, or $720,000 per year, has resulted in a 21.5 percent increase in average peak-period speeds on the con- gested SR 167 general-purpose lanes and an 11 per- cent increase in average volumes in the corridor. The reality is that the cost of subsidizing the opera- tion of the SR 167 HOT lanes is pennies on the dol- lar compared to the cost of implementing physical enhancements to SR 167 that could achieve the same level of congestion reduction as the HOV-to- HOT conversion. WSDOT’s challenge has been help- ing its stakeholders understand the overall value for money that the project brings. (This challenge may be eased, as WSDOT anticipates that toll rev- enue will continue to approach operational costs and eventually the system will break even.)

will be very interested in how the introduction of congestion-priced lanes would influence traffic volumes at different times of the day. They will likely support the project if it increases windows of uncongested periods of time during which they can schedule deliveries. This may have a sig- nificant effect on their financial bottom line and, as such, create a constituency of interest and support for potential priced facilities. Table 4-3 indicates the likely level of interest in different performance measures identified across the 13 market constituencies. Before engaging in outreach or education activities with these groups, sponsors of congestion pricing projects should review which particular performance indicators will be of strong interest to the group and then tailor information to focus on those areas to achieve the greatest potential of gaining support. Integrating Performance Evaluation and Measurement with Public Outreach 75 Strong Interest Some Interest Limited Interest El ec te d O ffi ci al s En vi ro nm en ta l I nt er es ts Tr an si t A ge nc ie s M ed ia Pu bl ic A ge nc y St af f Em pl oy er s N ei gh bo rh oo d G ro up s Sp ec ia l E ve nt G ro up s En fo rc em en t A ge nc ie s Tr uc ki ng In te re st s Se rv ic es M ov em en t O rg s Ta xi /R en ta l C ar O rg an iz at io ns R et ai l I nt er es ts SYSTEM IMPACTS Volume & Throughput Average Daily Traffic Corridor Average Daily Traffic Priced Lane(s) Traffic Volume Weekly GP Lanes Traffic Volume Weekly Priced Lane(s) Average Daily People Volume GP Lanes Average Daily People Volume Priced Lane(s) Speeds & Travel Time Peak-Hour Travel Time in GP Lanes Peak-Hour Travel Time in Priced Lane(s) Delay in GP Lanes Time Savings in Priced Lane(s) Cost of Delay Occupancy Mode Share/Split Average Vehicle Occupancy Parking Park-N-Ride Activity (lot counts) UTILIZATION User Characteristics HOV Usage SOV Usage Hybrid Usage Demographics/Socioeconomics Trip Characteristics Frequency of Use Departure Times Trip Length Reason for Use/Trip Purpose Table 4-3. Performance measure interest by market. (continued on next page)

76 Evaluation and Performance Measurement of Congestion Pricing Projects Strong Interest Some Interest Limited Interest El ec te d O ffi ci al s En vi ro nm en ta l I nt er es ts Tr an si t A ge nc ie s M ed ia Pu bl ic A ge nc y St af f Em pl oy er s N ei gh bo rh oo d G ro up s Sp ec ia l E ve nt G ro up s En fo rc em en t A ge nc ie s Tr uc ki ng In te re st s Se rv ic es M ov em en t O rg s Ta xi /R en ta l C ar O rg an iz at io ns R et ai l I nt er es ts ENVIRONMENT Air Quality CO Emissions VOC/TOG Emissions Nox/NO2 Emissions Noise Noise Levels Fuel Consumption TRANSIT Performance General Operational Impacts Travel Times/On-Times/Excess Wait Average Speed Occupancy Ridership Average Vehicle Occupancy Finance Farebox Revenue Safety On-the-Job Injuries OPERATIONS Finance Revenue Average Toll Enforcement Violations Penalty Notices Issued/Paid/Unpaid Representations & Appeals Safety Collisions Incident Response Time Speed Differential On-the Job Injuries Customer Service Call Center Performance Call/Email Activity Table 4-3. (Continued).

Once the decision has been made regarding what information needs to be shared with which audiences, the next step in the public outreach and education plan involves identifying which communication methods would be the most effective and appropriate to deliver the informa- tion. Table 4-4 lists an array of materials and approaches that can be used to deliver information on congestion pricing projects and summarizes the respective advantages and disadvantages of each approach/material. Approaches and materials include print media (e.g., brochures, adver- tisements, issue papers, and lengthy technical reports) and broadcast and social networking media. Each of these media will reach different types of constituencies. For example, younger people may be more likely to use social networking media, while homeowners would be more likely to see flyers included with utility bills. Care should be taken to match the different out- reach and education techniques with the audiences being targeted. However, no matter what techniques are selected as part of the congestion-priced facility’s education and outreach plan, data about the performance of the existing facility as well as details about the benefits of the new priced facility should always be presented consistently and concisely. Integrating Performance Evaluation and Measurement with Public Outreach 77 Strong Interest Some Interest Limited Interest El ec te d O ffi ci al s En vi ro nm en ta l I nt er es ts Tr an si t A ge nc ie s M ed ia Pu bl ic A ge nc y St af f Em pl oy er s N ei gh bo rh oo d G ro up s Sp ec ia l E ve nt G ro up s En fo rc em en t A ge nc ie s Tr uc ki ng In te re st s Se rv ic es M ov em en t O rg s Ta xi /R en ta l C ar O rg an iz at io ns R et ai l I nt er es ts PUBLIC PERCEPTION Acceptance Awareness General Fairness/Equity SOV Use for a Fee OK? Tolling HOVs OK? Free hybrid access OK? Time-of-day Pricing OK? 24-hour Operation? Tolls to Support Transit Affordability Satisfaction Perceived Time Savings Perceived Safety Signage Enforcement Effectiveness Congestion Reduction Improve Urban Environment Media Coverage # of Article/Reports Pos. & Neg. Economics & Land Use Goods and Services Movement Housing Decisions Table 4-3. (Continued).

78 Evaluation and Performance Measurement of Congestion Pricing Projects Techniques Advantages Disadvantages Printed Public Information Materials • Fact sheets • Newsletters • Brochures • Issue papers • Can reach large target audience • Allow for technical and legal reviews • Encourage written responses if comment form enclosed • Facilitate documentation of outreach process • Only as good as the mailing list/distribution network • Limited capability to communicate complicated concepts • No guarantee materials will be rea d • May need to be translated into various languages Information Repositories Libraries, city halls, distribution centers, schools, and other public facilities are good locations for housing project-related information • Relevant information is accessible to the public without incurring the costs or complications of tracking multiple copies sent to different people • Can set up visible distribution centers for project information • Information repositories are often not well used by the public Technical Reports Technical documents reporting research or policy findings • Provide for thorough explanation of project decisions • May be more detailed than desired by many participants • May not be written in clear, accessible language Print Advertisements Paid advertisements in newspapers and magazines • Potentially reach a broad public • Expensive, especially in urban areas • Allow for relatively limited amount of information • May need various formats to ensure language requirements of audience are met Broadcast Advertisements Paid or in-kind on the radio or television • Reach a broad public • Expensive, especially in urban areas • Allow for relatively limited amount of information • May need various placements to ensure language requirements of audience are met Information Inserts A fact sheet inserted into another periodical • Provide communitywide distribution of information • Presented in the context of local paper, insert is more likely to be read and taken seriously • Provide opportunity to include public comment form • Expensive, especially in urban areas • May need various formats to ensure language requirements of audience are met Internet and Social Media Outreach • Facebook • MySpace • Twitter • E-Blast • Inexpensive to implement • Allows for two-way communication • Needs to be constantly monitored and updated to remain fresh • Access to those with varying degrees of internet savvy Website • Optimal location to post detailed information • Allows for ability to ask questions • Needs to be constantly monitored and updated to remain fresh • Access to those with varying degrees of internet savvy Bill Stuffer Information flyer included with monthly utility bill • Widespread distribution within service area • Economical use of existing mailings • Limited information can be conveyed • Message may get confused as to the mailing entity Information Hotline A phone number for public access to prerecorded project information or to reach project team members who can answer questions/obtain input • People don’t get “the run around” when they call • Controls information flow • Conveys image of “accessibility” • Easy to provide updates on project activities • Designated contact must be committed to and prepared for prompt and accurate responses Table 4-4. Education and outreach techniques.

Integrating Performance Evaluation and Measurement with Public Outreach 79 Information Centers and Field Offices Office established with prescribed hours to distribute information and respond to inquiries • Provide an opportunity for more responsive ongoing communications • Give the project a visible presence in the community • Relatively expensive, especially for one project only • Access is limited to those in vicinity of the center, unless facility is mobile Expert Panels Public meeting designed in “Meet the Press” format. Media panel interviews experts from different perspectives. • Encourage education of the media • Present opportunity for balanced discussion of key issues • Provide opportunity to dispel misinformation • Require substantial preparation and organization • May enhance public concerns by increasing visibility of issues Briefings Use regular meetings of social and civic clubs and organizations to provide an opportunity to inform and educate. Normally these groups need speakers. Examples of target audiences: Rotary Clubs, Lions Clubs, Elks Clubs, Kiwanis, League of Women Voters. Also a good technique for elected officials. • Control of information/ presentation • Opportunity to reach a wide variety of individuals who may not have been attracted to another format • Opportunity to expand mailing list • Similar presentations can be used for different groups • Builds community goodwill • Project stakeholders may not be in target audiences • Topic may be too technical to capture interest of audience Central Information Contact Providing access to technical expertise to individuals and organizations • Builds credibility and helps address public concerns about equity • Can be effective conflict- resolution technique where facts are debated • Limited opportunities exist for providing technical assistance • Technical experts may counter project information Techniques Advantages Disadvantages Media Relations • News releases • Feature stories • Editorial briefings • News conferences • Very inexpensive method for broad audience reach • No guarantee of reporting accuracy • Inability to ensure that stories will run in a timely manner Podcasts and Webinars • Good forum for providing detailed information • Webinars can include one-to- one communication • Relatively limited reach given length of presentations and access to internet Tours Provide tours for key stakeholders, elected officials, advisory group members, and the media • Opportunity to develop rapport with key stakeholders • Makes choices more familiar • Number of participants is limited by logistics • Potentially attractive to protestors Open Houses Allow members of the public to learn at their own pace. The open house location should be set up with several stations, each addressing a separate issue. Resource people guide participants through the exhibits. • Foster small group or one-on- one communications • Ability to draw on other team members to answer difficult questions • Build credibility • Conducive to media coverage • Difficult to document public input • Agitators may stage themselves at each display • Usually more staff-intensive than a meeting Community Fairs Central event with multiple activities to provide project information and raise awareness • Focus public attention on one element • Conducive to media coverage • Allow for different levels of information sharing • Public must be motivated to attend • Usually expensive to do it well In-Home “Coffee Meetings ” Small meetings within neighborhood, usually at a person’s home • Relaxed setting is conducive to effective dialogue • Maximize two-way communication • Can be costly and labor intensive Table 4-4. (Continued). (continued on next page)

80 Evaluation and Performance Measurement of Congestion Pricing Projects Meetings with Existing Groups Small meetings within neighborhood, usually at a person’s home • Opportunity to get on the agenda • Provide opportunity for in- depth information exchange in non-threatening forum • May be too selective and can leave out important groups Survey-Facilitated Workshops Any sized meeting when participants use interactive computer technology to register opinions • Immediate graphic results prompt focused discussion • Areas of agreement/ disagreement easily portrayed • Minority views are honored • Responses are private • Level the playing field • Software limits design • Potential for placing too much emphasis on numbers • Technology failure Advisory Committees A group of representative stakeholders assembled to provide public input to the planning process • Provide for detailed analyses for project issues • Participants gain understanding of other perspectives, leading toward compromise • General public may not embrace committee’s recommendations • Members may not achieve consensus • Sponsor must accept need for give-and-take • Time and labor intensive Task Forces A group of experts or representative stakeholders formed to develop a specific product or policy recommendation • Findings of a task force of independent or diverse interests will have greater credibility • Provide constructive opportunity for compromise • Task force may not come to consensus or results may be too general to be meaningful • Time and labor intensive Panels A group assembled to debate or provide input on specific issues • Provide the opportunity to dispel misinformation • Can build credibility if all sides are represented • May create wanted media attention • May create unwanted media attention Techniques Advantages Disadvantages Workshops An informal public meeting that may include presentations and exhibits but ends with interactive working groups • Excellent for discussions of criteria or analysis of alternatives • Foster small group or one-to- one communication • Ability to draw on other team members to answer difficult questions • Build credibility • Maximize feedback obtained from participants • Foster public ownership in solving the problem • Hostile participants may resist what they perceive to be the “divide and conquer” strategy of breaking into small groups • Knowledgeable small-group facilitators are necessary Table 4-4. (Continued).

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TRB’s National Cooperative Highway Research Program (NCHRP) Report 694: Evaluation and Performance Measurement of Congestion Pricing Projects is designed to help transportation agencies select or develop measures to evaluate congestion-pricing projects; collect the necessary data; track performance; and communicate the results to decision makers, users, and the general public.

A companion document to NCHRP Report 694 was published as NCHRP Web-Only Document 174: Performance Measurement and Evaluation of Tolling and Congestion Pricing Projects, which provides an overview of the purpose, scope, and methodology, and a complete compilation of the work products that were used to develop NCHRP Report 694.

The PDF of this report has some information not supplied in the original print version. Be advised that inclusion of this information has affected the layout of Appendix A and may affect printing.

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