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NATIONAL
NCHRP REPORT 686
COOPERATIVE
HIGHWAY
RESEARCH
PROGRAM
Road Pricing:
Public Perceptions
and Program Development
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
Larry L. Brown, Sr., Executive Director, Mississippi DOT, Jackson
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
Adib K. Kanafani, Cahill Professor of Civil Engineering, University of California, Berkeley
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
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
Carolann D. Wicks, Secretary, Delaware DOT, Dover
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
George Bugliarello, President Emeritus and University Professor, Polytechnic Institute of New York University, Brooklyn; Foreign Secretary,
National Academy of Engineering, Washington, DC
Anne S. Ferro, Administrator, Federal Motor Carrier Safety Administration, 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 February 2011.
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NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
NCHRP REPORT 686
Road Pricing:
Public Perceptions
and Program Development
Anjali Mahendra
Michael Grant
ICF INTERNATIONAL
Fairfax, VA
Thomas Higgins
Kiran Bhatt
K. T. ANALYTICS, INC.
Bethesda, MD
Subscriber Categories
Administration and Management · Finance · Highways · Planning and Forecasting · Policy · Society
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 686
RESEARCH PROGRAM
Systematic, well-designed research provides the most effective Project 08-73
approach to the solution of many problems facing highway ISSN 0077-5614
administrators and engineers. Often, highway problems are of local ISBN 978-0-309-15543-4
interest and can best be studied by highway departments individually Library of Congress Control Number 2011922251
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
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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
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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.
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Printed in the United States of America
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COOPERATIVE RESEARCH PROGRAMS
CRP STAFF FOR NCHRP REPORT 686
Christopher W. Jenks, Director, Cooperative Research Programs
Crawford F. Jencks, Deputy Director, Cooperative Research Programs
Nanda Srinivasan, Senior Program Officer
Charlotte Thomas, Senior Program Assistant
Eileen P. Delaney, Director of Publications
Natalie Barnes, Editor
NCHRP PROJECT 08-73 PANEL
Field of Transportation Planning--Area of Forecasting
Mark F. Muriello, Port Authority of New York and New Jersey, New York, NY (Chair)
Kenneth R. Buckeye, Minnesota DOT, St. Paul, MN
Robert E. Fellows, Washington State DOT, Seattle, WA
Robin Grier, Virginia DOT, Richmond, VA
Deborah Robertson, California DOT, Los Angeles, CA
Bruce Schaller, New York City DOT, New York, NY
Edward C. Sullivan, California Polytechnic State University, San Luis Obispo, CA (deceased)
Humberto A. Tasaico, North Carolina DOT, Raleigh, NC
Kathy Daniel, FHWA Liaison
Martine A. Micozzi, TRB Liaison
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FOREWORD
By Nanda Srinivasan
Staff Officer
Transportation Research Board
This report describes road pricing concepts and discusses their potential effectiveness and
applicability. It also provides guidelines for project planning and integrating pricing into
regional and state planning processes, and for communicating strategies and engaging
affected parties. The report is structured to aid both readers familiar and unfamiliar with
road pricing, providing both a brief overview of the concepts as well as in depth informa-
tion on the latest applications, impacts, operations, costs, and policy and acceptability
considerations.
The report is divided into two parts. Part 1 provides a review of six road pricing concepts
and information for planners and decision makers to evaluate the potential of the concepts
and understand the best engagement and communication strategies. Part 2 provides inter-
view findings, literature reviews, and references to resource materials on planning, engage-
ment, and communication related to road pricing strategies. The report will be of broad
interest to state, regional, and local planners; project development staff; chief executives;
and other decision makers.
Road pricing (RP) has advanced over the years, moving from the level of basic research
and economic and policy analysis to effective and acceptable implemented projects. The
most popular and widespread RP concept to date has been conversion of high-occupancy
vehicle (HOV) lanes to high-occupancy toll (HOT) lanes and new-capacity HOT lane proj-
ects. These projects have shown initial success in managing traffic more effectively, raising
revenue for system investment, advancing greater travel reliability for roadway users, and
creating new travel options. The objective of this research project was to develop both eas-
ily digestible information and guidance as well as supporting detailed resource information
to help planners; state, regional, and local decision makers; and stakeholders in transporta-
tion developments to (1) understand transportation needs and challenges which RP can
effectively address; (2) identify opportunities and conditions for applying and integrating
RP into local, regional, and state projects and programs; and (3) develop effective commu-
nication and public engagement actions to ensure best chances at acceptable and effective
implementation of RP. A better understanding of how all these concepts apply to pressing
problems of congestion, pollution, and lagging financial resources for transportation is
needed to ensure that RP solutions are considered in projects and programs. Good articu-
lation of the issues RP can address and of the best ways to advance acceptable and effective
projects will boost attention to RP in the mix of solutions for the future.
The research was performed by ICF International and K.T. Analytics. Information was
gathered via literature review and interviews with practitioners. Six road pricing concepts
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for possible application based on experience to date are discussed: (1) conversion of exist-
ing HOV or other lanes to HOT lanes; (2) variable pricing on new or rehabilitated facilities;
(3) variable pricing on existing tolling facilities; (4) areawide/cordon pricing; (5) distance-
based pricing; and (6) variable pricing applied to parking.
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CONTENTS
P A R T 1 Decision-Making and Planning Guide
3 Introduction
6 Section 1 Decision-Making Guide: Evaluating Road Pricing
Potential for Your Local Area and Conditions
6 1.1 Road Pricing Concepts
6 1.1.1 Conversion of Existing HOV or Other Lanes to HOT Lanes
7 1.1.2 Variable Pricing on New or Rehabilitated Facilities
and Regionwide Networks
7 1.1.3 Variable Pricing on Existing Toll Facilities
8 1.1.4 Areawide Pricing
8 1.1.5 Distance-Based Pricing or Mileage Fees
9 1.1.6 Parking Pricing
9 1.2 Local Community Goals
11 1.3 Existing Conditions and Policy Requirements
12 1.4 Planning, Acceptability and Engagement
16 Section 2 Planning Guide: Developing Road Pricing
Plans and Programs
16 2.1 Checkpoints for Planning, Engagement, and Communication
17 2.1.1 Overview of Planning for Road Pricing
17 2.1.2 Planning Phases of Project Development
32 2.2 Road Pricing in the Transportation Planning Process
33 2.2.1 Overview of the Transportation Planning Process
35 2.2.2 Bringing Road Pricing into the Transportation Planning Process
41 2.3 Analytic, Policy, and Success Considerations for Each Road Pricing Concept
41 2.3.1 Conversion of Existing HOV and Other Lanes to HOT Lanes
43 2.3.2 Variable Pricing on New or Rehabilitated Facilities
and Regionwide Networks
45 2.3.3 Variable Pricing on Existing Toll Facilities
47 2.3.4 Areawide Pricing
51 2.3.5 Mileage Fees
54 2.3.6 Parking Pricing
P A R T 2 Resources and References
59 Section 3 Summary of Literature Review on Planning
for Road Pricing
59 3.1 Domestic Scan of Congestion Pricing and Managed Lanes
60 3.2 GAO Report on MPOs
60 3.3 MPO Review on Congestion Policies by Anthony Downs
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60 3.4 MPO Review for TEA-21 Reauthorization by Bruce Katz et al.
61 3.5 Decision-Making Framework for Pricing Decisions
61 3.6 Federal Interim Guidebooks and Briefing Book
62 3.7 Strategic Highway Research Program 2 Project C01
64 Section 4 Interview Findings
64 4.1 Road Pricing Emergence Factors
66 4.2 Relationship of RP with Regional Transportation Planning Requirements
66 4.3 Relationship of RP with Specific Planning Actions
and Required Planning Processes
67 4.4 Role of State and State Department of Transportation in Planning for RP
68 4.5 Role of Federal Government in Planning for RP
69 4.6 Public/Stakeholder Involvement in RP Plans
70 4.7 Maximizing Attention to RP in Planning--Barriers and Opportunities
73 Appendix A Literature Review on Planning for Road Pricing
84 Appendix B Literature Review on Road Pricing Acceptability,
Communication, and Engagement
95 Appendix C Interview Guide
97 Appendix D List of Interview Sites and Interviewees
98 Appendix E Interview Summaries Related to Planning
for Road Pricing
117 Appendix F Interview Summaries Related
to Communication and Engagement
133 Appendix G Planning Resources for the Road
Pricing Concepts
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.
