Road Pricing: Public Perceptions and Program Development (2011) / Chapter Skim
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Decision-Making and Planning Guide P A R T 1
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Planned implementation must be in the hands of agencies trusted to carry them out and the planning process itself must be perceived as credible, responsive, and engaging of all affected parties. Required state and regional transportation planning processes can also play a role in the implementation of road pricing.
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However, local and state planners need lessons and checkpoints based on the latest experience to evaluate and integrate a full array of road pricing strategies into transportation planning and project development. They also need approaches for addressing public and decision maker acceptability through effective communication if road pricing is to have the best prospects for successful adoption and implementation.
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It also provides detailed literature review and interview findings for readers already familiar with road pricing who want to review the latest pertinent information from research studies and local pricing programs. It includes references and links to many U.S.
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provides the main considerations related to acceptability, engagement, and communication that are important for the successful adoption and implementation of all the pricing concepts. 1.1 Road Pricing Concepts The discussion in this section and the rest of the report focuses on the following six categories of road pricing: • Conversion of existing HOV or other lanes to HOT lanes • Variable pricing on new or rehabilitated facilities and regionwide networks • Variable pricing on existing toll facilities • Pricing of an area of existing roads and streets ("areawide" or "cordon" pricing)
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Some implemented projects include the I-15 FasTrak express lanes in San Diego, the QuickRide HOT lane projects on I-10 and US-290 in Houston, HOT lanes on I-25/US-36 in Denver, MnPASS lanes on I-394 in Minneapolis–St. Paul, and the SR-167 HOT lanes in the Puget Sound region.
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Germany, Switzerland, Austria, the Czech Republic, Hungary, and Slovakia are successfully operating such systems. In the United States, Portland, Seattle, the Twin Cities region, and Atlanta have conducted 8 Road Pricing: Public Perceptions and Program Development
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The section also provides planning and communication lessons geared towards achieving maximum acceptability and successful implementation. 1.2 Local Community Goals Road pricing is effective in meeting many current community and state transportation planning goals.
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Community and regional goals achievable by road pricing concepts. Road Pricing Concepts COMMUNITY AND REGIONAL GOALS Conversion of Existing HOV or Other Lanes to HOT Lanes Variable Pricing on New or Revamped Facilities Variable Pricing on Existing Toll Facilities Areawide Pricing Mileage or VMT Fees Parking Pricing Reduce or prevent congestion at peak hours or congested locations + + ++ ++ + + Reduce auto use and encourage alternatives to reduce VMT to support sustainability goals + + ++ ++ ++ + Encourage shift to other modes, time periods, or routes for efficient utilization of capacity + ++ ++ ++ + + Delay or forgo capacity enhancements + ++ + + Raise revenues for transportation investment, provided surplus revenues are available + + ++ ++ ++ + Ensure better utilization of HOV lanes ++ Reduce emissions and improve safety + + + + + + Improve transit speed and reliability + + ++ Improve experience of using public spaces, shopping and doing business for visitors and residents ++ + ++ Reduce searching for parking and increase parking turnover to ensure better use of existing capacity ++ Note – +: supportive; ++: very supportive
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Road Pricing Concepts MAXIMUM APPLICABILITY CONDITIONS Conversion of Existing HOV or Other Lanes to HOT Lanes Variable Pricing on New or Revamped Facilities Variable Pricing on Existing Toll Facilities Areawide Pricing Mileage or VMT Fees Parking Pricing Congestion due to capacity constraints + + + + Underused or overused HOV lanes + Congestion/delays across zone of streets and highways + + + Peak-period congestion + + + + + Availability of travel options (transit, HOV services, bike, walk, park and ride, TDM) + + + + + + Off-peak travel options available (e.g., flexible work hours for commuters)
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For HOT lanes, variable pricing based on time of travel on new or existing toll facilities, mileage fees, and flexible work hours for commuters will aid effectiveness and acceptability. For areawide pricing, alternative free routes for through traffic and park and ride options outside the priced zone to support a change in mode will boost effectiveness and acceptability.
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Planning Plans for road pricing are most likely to succeed where: Problem Focus, Project Experience, Link to Regional Planning Pricing plans address severe congestion-related problems or problems of "crisis" nature to decision makers, stakeholders, and affected parties. Individual pricing projects already have taken place or can take place before broad pricing policies, goals, and strategies are developed for adoption in regional and state plans.
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The lessons from studied projects also emphasize achieving consensus and compromise on revenue allocations, driving alternatives, good enforcement, toll schedules, privacy matters, and other program design elements. While these details may not arise in early discussions with decision makers and stakeholders while testing the waters about potential road pricing options, they are likely to arise once planning and engagement begins in earnest.
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In addition, Part 2 provides still more information on the road pricing acceptability literature, details from successful projects with examples of engagement and communication practices, and more detail on integrating road pricing into the formal regional and state planning process. Decision-Making Guide: Evaluating Road Pricing Potential for Local Areas and Conditions 15
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road pricing planning, including how planning has proceeded thus far in states and regions, and the nature of the formal transportation planning process as specified in federal guidance and S E C T I O N 2 Planning Guide: Developing Road Pricing Plans and Programs
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The interview sites are listed below with pricing plans and proposals subject to the interviews noted in parentheses: • New York (areawide pricing, new variable parking pricing) • San Francisco metro area (areawide pricing, HOT lane networks)
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The points explained below are not surefire steps to implementing pricing projects but include lessons to date, cautions on pitfalls, and actions with the best possible prospects for bringing forth effective and acceptable road pricing plans and projects. 2.1.2.1 Target and Frame Problems Strategically In both the preliminary and formal planning stages, it is important to focus discussion and effort on a problem or set of problems that are as pressing and compelling as possible.
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region, planners stressed widespread congestion concerns, national congestion rankings, framing of outsiders as culprits for part of the congestion problem, and funding constraints in their painting of the problem to be addressed and how pricing could address it. Plan and communication materials portrayed a "system in crisis," highlighting the twin problems of "rapidly worsening congestion and funding shortfalls." Planners also stressed independent evidence about the ranking of the region on a congestion index as "number two" in the nation with the reminder of a significant number of commuters from "out of state." The approach has resonated with decision makers and local motorists sufficiently to aid the acceptability of several road pricing programs.
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Express lane revenue can be used to help pay off bonds issued to finance construction, provide for maintenance, operations and enforcement of the lanes, and to fund new or enhanced transit service. Source: http://www.mtc.ca.gov/planning/hov/faq.htm Frequently Asked Questions Why consider express lanes?
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While there are cases of road pricing programs arising without strong support from prominent policymakers and instead mostly from the actions of agency officials and active stakeholders, and examples of failed proposals with active decision makers and/or agency officials, the positive potential of champion support should not be ignored. In particular, planners should ensure that champions (or their close aides)
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Exhibit 6 22 Road Pricing: Public Perceptions and Program Development Exhibit 6. Description and goals of NYC Park Smart program.
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Equally important is attention to specific program design elements including those that the literature shows are key to acceptability, such as: • Gearing revenue allocations and uses in line with stakeholder preferences, usually toward improvements of interest in the priced zone, though other options also may be preferred including potential tax reductions • Providing not only enhanced alternatives to driving, but an acceptable free driving alternative • Good enforcement strategies to ensure equitable access to priced facilities and avoid "free riders" • Simple rather than complex toll schedules • Handling possible traffic and parking diversion in sensitive areas • Handling data and traveler information to maintain user privacy
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Some pilot programs may be supported by the federal Value Pricing Program, which offers technical assistance and funds to support planning, operations, and evaluation. Examples from Interview Sites: Examples of accepted and adopted plans with transit and other travel options emphasized and communicated are numerous.
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MTC addressed income equity along the way to successful adoption of its HOT lane network with not only the common approach of emphasizing transit improvements, but also the work of an independent expert suggesting no one is "forced" to pay as the free alternative always exists. Oregon DOT suggested a voluntary switch from the gas tax to mileage fee to counter perceptions that the mileage fee is unfair to rural versus urban drivers and the contentious issue of double payment.
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See Exhibits 9 and 10 for how fairness concerns were targeted in communication content for express lanes in Los Angeles. 2.1.2.5 Keep Planning Open and Responsive; Make Government a Problem-Solving Partner, not Culprit As planning moves from preliminary assessment to an open formal process, the conduct of the process itself may become an important acceptance issue.
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Examples from Interview Sites: Evolution of pricing proposals in the interview sites shows the role of a responsive planning process and capable, trustworthy agency image. Modifications to the original congestion pricing plan for New York City helped build support for the revised plan after intensive public discussion and a series of well-attended public hearings.
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Ensuring that the communication vehicles are available in multiple languages represented in the region and to minority communities, English speaking and otherwise, also helps ensure that all potentially affected parties are reached and have the information they need to participate in the planning process. 28 Road Pricing: Public Perceptions and Program Development Exhibit 11.
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and matching language accordingly reduced the risk of offending audience members. Other interview sites also have chosen not to use the term "congestion pricing." For example, Texas uses "managed lanes" and Minnesota uses "express lanes" or simply "MnPASS lanes" after the well-received and widely recognized transponder used on the express lanes (see Exhibit 12)
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After successful implementation of its first HOT or express lane project, I-394, MnDOT has operated not only an interactive website 30 Road Pricing: Public Perceptions and Program Development
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With this pilot program, Oregon is not looking to raise revenue but looking at options for the inevitable future road revenue decline. While it is true that ODOT is obliged to test congestion pricing in the pilot program, this is a requirement of ODOT's FHWA Value Pricing Pilot Program grant and not an indication of a specific policy directive adopted by the Oregon DOT or the state legislature.
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The interviews focused on planning for road pricing projects and the treatment of road pricing in regional and state plans. The 32 Road Pricing: Public Perceptions and Program Development Exhibit 14.
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The literature review focused on road pricing planning in states and regions, and federal guidance and law underlying the transportation planning process. Part 2 contains the literature review and interview findings.
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of the transportation 34 Road Pricing: Public Perceptions and Program Development Exhibit 16. Metropolitan transportation planning requirements, highlighting system management and operations.
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• MPOs must develop an effective participation plan involving affected parties and stakeholders. 2.2.2 Bringing Road Pricing into the Transportation Planning Process Plans for road pricing projects should be considered in conjunction with: • Steps 1 through 3 leading to Step 4 in Exhibit 15, when the long-range plan is finally adopted • Requirements in Exhibit 16 specifically, the CMP, air quality conformity through transportation strategies, participation plan, and fiscal constraint Specifically, the following subsections indicate where in the formal planning process road pricing can and should fit and contain examples of how it has been done.
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The points are in line with both interview findings and literature on developing acceptable and successful plans and projects. Road pricing proposals should include options for the use of revenues and potential for speeding transportation capacity enhancements and supporting transit services.
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Under these programs, federal aid may be available to support road pricing options for enhanced analysis and implementation. To date, support has spanned HOT lanes, pricing on existing facilities, areawide pricing, VMT fees geared to congested locations, and parking pricing (such support may or may not continue under forthcoming reauthorization of federal transportation programs)
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They also have strong interests in uniform, safe operations and enforcement of new priced facilities such as HOT lanes. Regional planning agencies involved in areawide or corridor pricing plans must engage state DOT planners, especially around needed state legislation, enforcement and operations on state roads, and financial issues of toll revenue allocation and use of multiple revenue sources for project development.
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Depending on varying congestion management objectives, strategies to be considered can include stand-alone road pricing projects or areawide pricing approaches or incorporate elements of pricing into the existing system. Some metropolitan areas have congestion management principles that prioritize demand management and operational strategies before infrastructure development.
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However, where several corridors or an entire network is anticipated, as with planned HOT lane networks in some regions, there will be important consequences for conformity analysis. For instance, an emissions analysis for the San Francisco Bay Area HOT lane network showed reduced emissions compared to the existing HOV network; this type of analysis was necessary for inclusion of road pricing into the transportation plan (see Exhibit 19)
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It involves conducting thorough analysis to show that disadvantaged populations, including low-income and minority communities, will not be disproportionately burdened by a road pricing scheme and that the project is the least discriminatory alternative. Experience has shown that it is important for state and local actors, including state DOTs, local leaders, MPOs, and congestion management agencies (CMAs)
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• I-394 HOT lanes in Minneapolis (also known as MnPASS lanes) , implemented in 2005 with objectives of increasing corridor capacity and throughput, improving utilization of HOV lanes, reducing congestion, creating a new travel option for solo drivers willing to pay a toll, and using excess revenues for improving highway facilities and transit service in the corridor.
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reconstruction in Houston, and managed lanes on I-30 and I-635 and the North Tarrant Expressway in Dallas. Also included in this category are regionwide networks of new express lanes or facilities at several potential locations within a region and, in some cases, including regionwide initiatives to promote carpooling or improve transit services.
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Local planning and federal programs: Congestion management process and fiscally constrained long-range plan may bear on HOT lane development and cost/revenue plans and require specification in or amendments to long-range regional transportation plan. Emerging Directions Motivators Underutilized or overutilized HOV lanes; perceptions of severe congestion in general purpose lanes; and willingness to pay for time savings, enhanced safety, and reliability.
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Plan transit access and egress requirements carefully where applicable to allow for buses moving across traffic into and out of HOT lanes. Collaborate across agencies on operations, enforcement, planning, and communication (highway patrol, transit operators, local transport authority, and regional planning and congestion management agencies)
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Equity Experience to date shows the income equity issue has not blocked programs, nor has it been critical in focus groups and surveys, e.g., for planned expansion of I-15, survey of facility users found 71% consider the extension fair with few differences based on ethnicity or income; equity assessments are limited but for SR-91, use of the express lanes increased over time for all modes across all incomes, with percentage of trips for the lowest and highest incomes (20% and 50%) stable over time.
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2.3.4 Areawide Pricing While the U.S. pricing programs to date have focused largely on introduction of variable pricing on single facilities, most of the road pricing efforts abroad have involved areawide or cordonbased congestion pricing.
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. Equity Experience to date shows income equity has not blocked programs and not a paramount issue in planning or focus groups and surveys; equity assessments are limited but a study of changes in electronic pass ownership before/after price changes in Illinois shows ownership rates increased across all income groups; equity concern may center more on those with inflexible work schedules.
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Although congestion reduction is often the primary objective, cities also seek to reduce emissions, noise, and traffic accidents and to improve pedestrian access and enjoyment of public spaces and businesses. Areawide pricing refers to pricing of vehicles entering and/or traveling into a zone, typically a congested downtown.
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Initial capital costs have ranged from $110 million in Singapore in 1998 to $410 million in Stockholm in 2006 and depend on technology and method of enforcement used. Equity Income inequity: Findings from Singapore attitudinal surveys show pedestrians, taxi riders, and residents outside the priced zone found the impact as neutral or negative while cyclists, bus passengers, and residents within the zone judged pricing as favorable; car drivers and passengers judged the program as mildly unfavorable; increases in transit were fairly uniform for low-, medium-, and high-income peak-period travelers; generally, the perception that congestion pricing is "unfair" to low-income drivers has not been a major concern in Singapore, London, and Stockholm after implementation.
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Politics: Identify/be cognizant of proportion of auto versus other mode users affected by pricing; accordingly, attend to key interest groups and tailor 2.3.5 Mileage Fees Road pricing where the charges paid are based on the number of vehicle-miles traveled has largely been applied to light-duty vehicles and/or trucks to date. A key goal of many VMT-based fee programs has been to preserve or increase transportation revenues, compared to declining gas tax revenues.
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Economic and finance issues: If implemented at a nationwide-scale with central billing, there is a possibility to apportion revenues more in line with travel volume within boundaries of states, counties, and regions. Equity Research shows that the distribution impacts across income groups of a flat mileage fee are not significant; however, geographic equity may be an issue as some rural residents drive longer distances than urban residents, which may be moderated by lower rural road fees; equity issues for congestion pricing component same as with other road pricing concepts -- see exhibits in this section.
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Increasing recognition during 2009 economic downturn that new sources of infrastructure finance must be explored. Oregon legislature expected to pass HB 2001A making the mileage-fee-based road pricing pilot program permanent, and authorizing a congestion pricing pilot in Portland.
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2.3.6 Parking Pricing Parking pricing strategies are applicable on and off street at spaces controlled by municipalities and can be of the following types: • Revising or instituting rates to vary by times and/or locations of peak use, for example higher in congested zones and/or peak times of day • Rates progressing by length of time parked, for example more costly rates for second or subsequent hours parked • Charges applied by actual time parked versus by time blocks; examples include daily versus monthly parking charges and rates by minutes instead of by hours or all day rates Recent examples of these parking pricing strategies include the SFpark program in San Francisco, the Park Smart pilot program in New York City, and a pilot program in Austin. Exhibit 25 provides more information on parking pricing.
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Possible integration of parking pricing technology with payment for transit and toll roads. Technologies offer improved data collection on parking use and turnover for evaluation and planning.
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