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4 Across the United States, many metropolitan areas have and continue to experience economic growth. More jobs attract more people. Often, overburdened and functionally obsolete trans- portation systems cannot keep pace with the increased demand for mobility. The result is traffic delays and congestion for more extended periods. States and regions have attempted various strategies to mitigate the problem and to offer travelers an alternative to congestion. One such strategy is the implementation of managed lanes on freeways. The Federal Highway Admin- istration (FHWA) defines managed lanes as highway facilities or a set of lanes where opera- tional strategies are implemented and managed in response to changing conditions (FHWA, 2008). Managed lanes are based on flexible operating strategies and active management of the transportation system and provide the perspective needed for integrated operations leading to improved performance (FHWA, 2017). In nearly all cases, the lanes are managed using price, vehicle eligibility, and/or access control. Often, these strategies are used in tandem to achieve operational objectives. Background Over the last several years, many transportation agencies have focused on tolling or pricing managed lanes (Perez et al., 2011). Tolling has historically served as a method to collect revenue to support construction and operation of the tolled facility. However, tolling can also support tran- sit, provide resources to transportation authorities, and actively manage performance through variable tolling (Fitzpatrick et al., 2016). Variable tolling charges drivers a fee that varies accord- ing to a fixed schedule or adjusts with the level of traffic on a congested freeway or managed lane (Perez et al., 2011). Once the objective of the priced managed lane project is met, the tolls may be removed (Fitzpatrick et al., 2016). As of 2015, over 5,000 lane-miles of managed lanes existed in the United States, and about 40% of them had tolls (Fitzpatrick et al., 2016). Agencies faced with dwindling transportation budgets also see these types of projects as a way to offset some of the costs of capacity expansion, maintenance, and operations (Perez et al., 2011). In addition to addressing traffic delay and congestion, many agencies look to priced managed lanes to offer travelers trip reliability, as well. This reliability is true for drivers and transit riders. Using price to actively control demand provides a more reliable travel time (Fitzpatrick et al., 2016). Priced managed lanes are not easy to deliver (Zmud and Arce, 2008). Agencies that want to implement tolling on managed lanes may encounter challenges primarily related to public and political opposition to tolling (Zmud and Arce, 2008). Priced managed lanes often have many different and sometimes competing goals, including congestion management, revenue genera- tion, person and vehicle throughput, transit ridership, carpooling, and environmental impact C H A P T E R 1 Introduction
Introduction 5 (Fitzpatrick et al., 2016). Advances in technology, such as electronic toll collection, may make priced managed lanes a more viable option to address congestion in the future (Perez et al., 2011). However, significant portions of the public have a limited understanding of and experi- ence with the use of tolling and pricing to manage demand (Zmud and Arce, 2008). Synthesis Objective The objective of this synthesis is to identify challenges that transportation agencies are confronted with related to system management issues, local experience, and messaging con- sistency. The synthesis documents strategies and tactics employed, lessons learned, and key success factors. Specifically, the synthesis compiles information about potential goals and objectives of priced managed lanes, the possible obstructions and obstacles to implementing or consider- ing priced managed lanes, and the critical challenges. The synthesis reports on the advantages and dis advantages of priced managed lanes for users, nonusers, and transportation authorities (Perez et al., 2011). The synthesis also assembles technical information related to tolling policies and performance management. The synthesis recognizes that each project implementation faces unique challenges pertinent to its local context. However, many challenges are common even if the context differs. By pro- viding potential challenges and lessons learned, the synthesis seeks to draw out common themes that can assist transportation authorities in successfully implementing a priced managed lane project. Identifying successful practices and documenting lessons learned contributes to the overall body of knowledge about priced managed lanes. Methodology The researchers used a literature review, survey, and case examples involving interviews to examine the following factors: ⢠Stated project goals, metrics, and policy development. ⢠Public understanding and behavioral response of tolling and pricing. ⢠Performance management, given constraints on policy. ⢠Engagement and messaging to the public. ⢠Agency understanding of political and social roadblocks. ⢠Mitigation approaches (e.g., policy changes, equity programs). ⢠External factors (e.g., other regional toll roads or conflicting state/local policies related to tolling) that may be influencing pricing policies. ⢠Lessons learned from project implementation or lack of implementation. Literature Review Researchers examined over 60 published papers, journal articles, and web articles in con- ducting the literature review. The researchers also explored media reports (e.g., published and online media) to assess public opinion about projects in planning and development and ongoing operations of implemented projects. Examining media reports can indicate how opinions may have changed over time or how messaging may address misperceptions. Over 700 media reports written within the last five years were identified, which speaks to the interest in the topic. Social media mentions focused more on the operations of specific lanes and were difficult to pin directly to priced managed lanes.
6 Emerging Challenges to Priced Managed Lanes Web-Based Survey Researchers developed and administered a web-based survey that was sent to departments of transportation (DOTs) from 50 states and the District of Columbia. The response rate was 100%. The survey sought to elicit responses from state DOTs about their planning for, and implementation of, priced managed lanes. Only one survey from each state DOT was allowed, so respondents were encouraged to coordinate with others in their organization, as appro- priate, to complete the survey. An initial screening question allowed state DOTs that are not currently planning, constructing, or operating any priced managed lanes to answer only that question and close the survey. Individuals were asked to provide their contact information, but researchers assured respondents that this information would not be reported and only used if follow-up questions were required for clarification purposes. The responses to the web-based survey were also used as a screening tool for the case examples. A total of 51 surveys were completed, with representation from all 50 states and the District of Columbia. Appendix A provides a copy of the survey instrument. Case Examples The literature review, media scan, and survey results all served as screening tools to identify six use case examples. The case examples provide a more in-depth look into specific challenges, obstacles, and barriers associated with priced managed lanes as well as if and how those were overcome. Specifically, the criteria to select the case examples included: ⢠Successful projects. ⢠Challenging and unsuccessful attempts. ⢠At least one high-occupancy vehicle (HOV)âtoâhigh-occupancy toll (HOT) lane conversion. ⢠At least one operational added-capacity project. In addition to published literature and survey results, researchers used semistructured inter- views to collect data and information about each case example. Researchers identified one or more interviewees who were involved with or knowledgeable about a particular use case. These individuals were asked to participate in a one-hour interview via telephone. An interview guide was developed, and interviewees were provided the questions in advance of the interview. One or two researchers asked questions, while another researcher recorded responses. Not every question was asked of each interviewee, and researchers and interviewees had the latitude to probe some subjects more and skip others, depending on the case. Appendix B provides a copy of the semistructured interview script and questionnaire, and Appendix C and Appendix D include the recruitment message and reminder message, respectively, used. The case examples describe the project context, timeline, challenges, success factors, and lessons learned. They present information that is transferrable to other states so that other trans- portation authorities might benefit from documentation of the experiences, both successful and unsuccessful. Report Organization Chapter 2 examines pricing on managed lanes through a literature review. The literature review discusses the use of pricing on managed lanes, how performance and policy interact, public response to pricing proposals, what messages are most relevant and useful to the public when communicating about managed lanes, and how agencies address equity. Chapter 3 presents results from a state-of-the-practice survey that had a 100% response rate from DOTs from 50 states and the District of Columbia. The results of the survey of state DOTs
Introduction 7 and other agencies provide a snapshot of how and why priced managed lanes are or are not being planned or implemented. The responses provide descriptive statistics about the purpose of pricing on managed lanes, how systems are developed, current toll policies, performance management, and public engagement and messaging. Chapter 4 provides an in-depth examination of the six case examples. Based on information collected as part of the previous tasks and with the benefit of the interviews to provide context, this chapter reviews each case example. Finally, Chapter 5 offers a summary of the findings and recommendations for additional research that will advance the state of the practice and broaden the body of knowledge. This chapter also lists the successful practices offered by practitioners for addressing the different types of challenges for implemented and operational projects.
