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Value Pricing Pilot Program: Lessons Learned – Appendix B

5.0 Making Driver Costs Variable

Table 5.1 Simulation of Pricing on Atlanta’s Interstate System and GA 400 Variable Pricing Institutional Study in Atlanta, Georgia

Making Driver Costs Variable

Simulation of Pricing on Atlanta’s Interstate System
and GA 400 Variable Pricing Institutional Study in Atlanta, Georgia

Operations

GA 400 Variable Pricing Institutional Study in Atlanta in Atlanta

  • The State Road and Tollway Authority (SRTA), is proposing to study the institutional challenges and feasibility of moving from a fixed-priced toll to a variably priced toll system of GA 400 Extension.
  • The GA 400 extension is a 6.2-mile tolled facility located in Fulton County, Georgia and provides a critical link between the northern portion of Atlanta’s Bypass (I‑285) and I‑85 en route to downtown Atlanta.
  • SRTA will examine the introduction of two different methods of variability:  1) varying the prices charged to GA 400 Extension users by method of payment (electronic toll collection versus cash); and 2) varying the prices charged to GA 400 Extension users by time of day.
  • The goal of this variable pricing study is to examine the feasibility and viability of using variable pricing techniques to shift traffic congestion on the GA 400 Extension and on the rest of the GA 400 corridor.
  • The major tasks of the proposal include thorough examination of the Toll Authority’s internal processes and procedures; legal, contractual and bond covenants; conceptual traffic and revenue forecasts necessary to meet financial obligations; and development of an implementation plan.  The study will produce reports identifying key issues as well as model documents for other toll authorities considering similar conversions.
  • Pre-implementation study funds were awarded in 2006.

Simulation of Pricing on Atlantas Interstate System

  • The purpose of the Commute Atlanta Study is to allow evaluation of the impacts of pricing policies on travel behavior, and will provide data from real-world experience to improve the ability of regional travel demand models to estimate the impacts of various types of pricing alternatives.
  • The Commute Atlanta study is the largest instrumented vehicle travel behavior study ever conducted.
  • The Phase I test was designed to assess the effects of converting fixed automotive insurance costs into variable driving costs by monitoring one full year of baseline travel activity for approximately 285 participating households.  Approximately 500 vehicles in these households are equipped with instrumentation that monitors the vehicle speed and position for every trip.  Travel diaries and employer commute options surveys were collected from each participating household and employer (as well as from a control group).  The one-year baseline data collection effort began in August 2003.
  • The Phase II effort of the Commute Atlanta study ran from October 2005 through June 2006.  In Phase II of the study, the impact of mileage-based insurance incentives was examined.  Households that reduce their household miles of travel will receive quarterly insurance rebates in accordance with their mileage-based rate schedule (annual insurance premium divided by baseline mileage).  Households that continue their pre-existing driving patterns or increase travel will not be penalized.
  • In Phase III, risk-based incentives (insurance rebates as a function of where, when, and how the vehicles are driven) will be examined.  The research team will monitor the changes in driving patterns and will use statistical analyses of household characteristics, vehicle travel, and relevant employer survey data (parking costs, transit accessibility, etc.) to examine the relationships between the incentives offered and subsequent travel behavior changes.
  • Also in Phase III, real-time congestion pricing will be implemented for approximately 100-120 participating vehicles.  Phase III uses a similar simulation approach.  However, in this effort a 20 cent per-mile congestion surcharge will be assessed to commute trips undertaken under congested freeway conditions (speeds < 40 mph).  Households that shift their commute travel out of peak congested periods will retain a significant portion of the incentive account.
  • In May 2007, Phase III recruitment of new participants began with deployment in June 2007.  The re-recruitment process for the 49 Phase III candidate households that currently are in the study continued.  The existing households will begin the pricing experiment in May 2007, while the new households are being recruited, allowing the research team to obtain preliminary estimates of incentive disbursements for the larger sample that will follow in June 2007.

Cost, Finance, and Revenue

GA 400 Variable Pricing Institutional Study in Atlanta

  • In 2005, the FHWA awarded $444,000 in pre-implementation study funds.

Simulation of Pricing on Atlantas Interstate System

  • In 2004, the FHWA awarded $1,180,863 in pre-implementation study funds.

Policy/Institutional

Simulation of Pricing on Atlantas Interstate System

  • The Georgia Institute of Technology, School of Civil and Environmental Engineering currently is conducting the Commute Atlanta Study.

Outreach/Acceptance

GA 400 Variable Pricing Institutional Study in Atlanta in Atlanta

  • Public Outreach – Resources will be provided to hold workshops and town hall style meetings along the GA 400 corridor to educate and receive input from citizens, businesses, and other interested parties on the potential for changing the toll characteristics of the GA 400 Extension.

Technology

Simulation of Pricing on Atlantas Interstate System

  • The volunteer households have installed a GT Trip Data Collector in their vehicles.  In total, 500 instrumented vehicles will be included in the study.
  • The on-board instrumentation and data transmission protocols employed in the Commute Atlanta Study were developed by a partnership between Georgia Tech, Altius Solutions, and Cingular Wireless.  The instrumentation and software were designed to Georgia Tech specifications and provide a very robust data collection solution.  The on-board equipment tracks second-by-second vehicle position, speed, acceleration, and up to 10 engine and emissions-related parameters.  Six additional data lines can allow researchers to collect information from on-off sensors (e.g., seat-belt use or windshield wiper status) and could be used to turn on or off additional on-board devices.  Data are transmitted via a cellular connection and a communications port enables the on-board equipment to send and receive data to and from almost any additional computing or scientific device carried on-board the vehicle.  To date, the researchers have demonstrated this capability by collecting and integrating data from a SEMTECH-D (by Sensors, Inc.) on-board emissions measurement system and have connected the equipment to monitor the engine computers on a MARTA bus.

Equity/Environmental

GA 400 Variable Pricing Institutional Study in Atlanta in Atlanta

  • Equity Analysis- Resources will be provided to analyze the most current socioeconomic data for the GA 400 corridor.  An equity analysis tool developed by Georgia Tech for SRTA’s use in analyzing the equity impacts of toll facilities will be used to determine any equity issues that should be addressed by SRTA.
  • Air Quality – Resources will be provided to perform preliminary estimates of air quality emissions changes on the GA 400 Extension using a variably priced toll collection system.  Data collection and modeling will be performed to determine the potential air quality benefits derived from this operational change.

Simulation of Pricing on Atlantas Interstate System

  • The research team established income, household size, and vehicle ownership groupings that reflect the distribution of households in the Atlanta region.  A specific number of single-person, middle-income, single-automobile households are targeted for inclusion in the study.

Impacts

GA 400 Variable Pricing Institutional Study in Atlanta in Atlanta

  • Preliminary results are not available at this time.

Simulation of Pricing on Atlantas Interstate System

  • Results from Phase II of the Commute Atlanta Study revealed that more than half of the households reduced their travel and more than $15,000 in incentive checks for associated with decreased travel were issued.  The research team currently is undertaking detailed case study and statistical analyses of household travel response (by trip type) as a function of household demographics, travel mode constraints, and relevant employer incentives (parking costs, transit accessibility, etc.) to examine the relationships between gasoline price increases, the incentives offered, and changes in travel behavior changes.

Evaluation

Simulation of Pricing on Atlantas Interstate System

  • Households were selected for participation through a random-stratified sampling process.  NuStats, a nationally-recognized travel survey consulting firm, worked with Georgia Tech to conduct the household recruitment.

Sources:
State Road and Tollway Authority of Georgia, GA 400 Variable Pricing Institutional Study.  FHWA Value Pricing Pilot Program Integrated 10-Point Detailed Proposal (DP) and 6-Point Sketch Plan (SP), Submitted March 15, 2005.

Commute Atlanta Study, Update September 5, 2003.
http://knowledge.fhwa.dot.gov/cops/hcx.nsf/All+Documents/576F0BF7699DFB7385256DC5006AEF58/$FILE/Commute%20Atlanta%20Overview.pdf.
Georgia Institute of Technology, Commuter Choice and Congestion-Based Pricing on Atlantas Interstate System.  Submitted to the Federal Highway Administration of the U.S. Department of Transportation.  Prepared by Randall Guensler and Jennifer Harper Ogle, Atlanta, Georgia, July 15, 2004.
http://knowledge.fhwa.dot.gov/cops/hcx.nsf/All+Documents/576F0BF7699DFB7385256DC5006AEF58/$FILE/GA%20Pricing%20Atlantas%20Interstate.pdf.
Commute Atlanta Study web site, available at http://commuteatlanta.ce.gatech.edu/.
Ogle, J., Guensler, R., and V. Elango (2005).  Commute Atlanta Value Pricing Program:  Recruitment Methods and Travel Diary Response Rates, Transportation Research Record No. 1931; pages 28-37.  National Academy of Sciences; Washington, D.C.
http://commuteatlanta.ce.gatech.edu/Resources/05-2504.pdf.
Elango, V., R. Guensler, and J. Ogle.  Day-To-Day Travel Variability in the Commute Atlanta Study.  86th Annual Meeting of the Transportation Research Board, Washington, D.C., January 2007.
http://commuteatlanta.ce.gatech.edu/Resources/07-0538.pdf.

Table 5.2 Mileage-Based User Fee Regional Outreach and Variablization of Fixed Automobile Costs in Minnesota

Making Driver Costs Variable

Mileage-Based User Fee Regional Outreach and Variablization of Fixed Automobile Costs in Minnesota

Operations

  • The Minnesota Department of Transportation completed a demonstration project to simulate effects on vehicle-use from conversion of certain fixed costs of owning and operating an automobile to variable per-mile costs, such as lease costs and insurance premiums.
  • The project’s goals were to:  simulate explicit price signals about travel decisions; to better understand transportation price elasticities and how they vary by vehicle ownership/lease arrangement, income, location, annual mileage driven and other factors; to gauge driver acceptance of user-based fees and the appropriate price signals necessary to affect travel behavior changes; and to identify strategies that may be employed to institutionalize the policies and techniques learned during the demonstration.
  • The project is known as the Pay-As-You-Drive pilot and involved a market assessment and an experimental field test.  Both studies helped estimate the level of interest in the pay-as-you-drive approach, the nature of the market for the concept, the response of drivers to price signals (price elasticities) that are based on miles driven, and the overall effect of the program on vehicle-miles traveled and traffic congestion.

Pay-As-You-Drive Market Assessment

  • Market study included telephone survey of 401 randomly selected households in the Twin Cities region, a telephone survey of 100 additional households with recent experience with vehicle leasing.
  • 297 self-selecting households (of the 401 random selection) with vehicle acquisition and insurance tradeoff questions complete a supplemental stated-preference mail survey.

Pay-As-You-Drive Field Test

  • Experimental field test included 130 participants whose travel behavior was measured under priced and nonpriced conditions in a longitudinal study.  The 130 participants were divided into:  1) several experimental groups for which per-mile pricing was simulated; and 2) a control group.  The experimental group was given an account based on the number of miles they drove during a one-month control period.  The account was debited based on per-mile charges.
  • Participants kept any money left in the account at the end of the experiment period.
  • Participants also were post-surveyed to assess attitudes and propensity towards pay-as-you-drive products.
  • Pricing protocols were assigned randomly and ranged from $0.05 to $0.25 per mile.
  • Pricing structure for experimental groups was varied for peak and nonpeak travel.
  • Participants self-reported odometer readings for other nonpriced household vehicles so that the impact of vehicle substitution could be measured.

Cost, Finance,
and Revenue

  • VPPP grant totaled $1,050,931 in FY 2001.

Policy/Institutional

  • This was a limited experiment, with no broad institutional requirements.

Outreach/Acceptance

  • Participants were surveyed regarding their acceptance of the pay as you drive concept.

Technology

  • The electronic device, CarChip, was plugged into the vehicle’s OBD II port and recorded data about each trip the participant made, including mileage and time of travel.  Participants mailed the CarChip’s back to the study team on a periodic basis, and were then given electronic statements of their activity.

Equity/Environmental

  • Not evaluated.

Impacts

Pay-As-You-Drive Field Test

Measurable impacts of the study included:

  • Average miles per vehicle, per day declined 8.1 percent, between unpriced and priced travel periods, during weekends.  Mileage fell 6.6 percent during weekday peak-period travel times.  In all other comparison cases, the average mileage during priced periods was lower than for unpriced periods.
  • The time-of-day pricing treatments show inconsistent results, with some of the highest pricing levels showing increases in the average daily miles traveled.  Average daily mileage for vehicles priced at $0.05 per mile and for vehicles priced at $0.20 per mile was 12 percent and 23 percent higher, respectively, than the average unpriced mileage.  These results may be due to small sample sizes.
  • Driving behavior also was measured through a regression analysis that sought to relate reductions in average daily mileage to the peak and off-peak charges, time period of the experiment, vehicle characteristics (such as the level of comfort), and socioeconomic characteristics of the household (age, income, vehicle availability, and attitudes toward driving in general and associated costs).  The following conclusions can be drawn from this analysis:
    • The higher the peak price is, the higher is the reduction in average daily mileage.  The negative coefficients of the peak price variables indicate that relative to a base peak price of $0.05 per mile, pricing at higher rates causes households to reduce their driving of the priced vehicle(s).
    • If one or more unpriced vehicles are available, a household may shift some of the driving from the priced to the unpriced vehicle(s).  The coefficient of “unpriced vehicles in households” is negative, indicating a substitution effect between vehicles available within households.
    • If one or more vehicles in the household are leased, the household is very likely to reduce driving.  This effect is strong, likely because households that already are used to leasing autos are more aware of the associated costs.

Pay-As-You-Drive Market Assessment

Market research surveying 410 metro area drivers regarding the potential for mileage-based leasing products found that:

  • Three-quarters of the drivers who said they are definitely planning to lease their next vehicle also are interested or very interested in participating in a mileage-based program.  Two-thirds of drivers who say they will probably lease their next vehicle are interested or very interested in the concept.
  • Overall, 25 percent of the original metro area drivers surveyed said they were interested or very interested in a mileage-based program, and 30 percent of those in the lease over-sample group were interested or very interested.
  • The vast majority of drivers own the vehicles they use and plan to purchase (not lease) their next vehicle.
  • Although drivers say they want to reduce the cost of owning and operating their vehicles, they are generally unwilling to modify their habits to accomplish this.
  • Respondents were asked in a stated-preference survey to choose among a standard insurance option and two mileage-based options (one with higher fixed monthly cost and a lower mileage-variable cost or one with a lower fixed monthly cost and a higher mileage-variable cost).  The standard insurance option was the most preferred, with 68 percent of respondents.  The two potential mileage-based insurance options each were preferred by 16 percent of the respondents, for a total of 32 percent.
  • The survey also revealed-preferences for the insurance versus the leasing versions of PAYD, with 25 percent of the stated-preference survey respondents probably or definitely interested in mileage-based insurance compared to 16 percent of respondents expressing similar interest levels in mileage-based leasing.

Pay-As-You-Drive Field Test

Significant findings indicate that:

  • Wide-scale per-mile pricing would result in a measurable, but small, reduction in vehicle mileage.
  • On a percentage basis, the greatest reduction in mileage would occur on weekends.  Weekday peak-period travel would be reduced by more than weekday off-peak period mileage.
  • Mileage reductions from per-mile pricing are seasonal, with the highest reductions during summer months.
  • Some households could reduce their mileage under per-mile pricing at significantly higher levels than most households.  Specifically, households that could reduce their mileage the most are those that:
    • Have other unpriced vehicles to which they could transfer their trips;
    • Have leased vehicles (probably because they are more accustomed to monitoring the mileage on vehicles); or
    • Have household members that actively think about automobile ownership and operating costs.
  • Households that are less likely to reduce their mileage under per-mile pricing are those that:
    • Share the use of one or more of their vehicles among household members; or
    • Have a head of household who is more than 65 years old.
  • Higher per-mile charges do not necessarily increase mileage reduction of households.
  • Results from the field test showed that households already willing/able to change driving behavior will do so with low per-mile cost incentives.  However, those households unable to change their behavior do not do so even under relatively higher cost incentives.  Therefore, elasticities vary with individuals and the marginal effect of per mile prices may sharply decrease at relatively low-mileage incentives.  This poses difficulties in designing targeted policies to fit broad populations.  As a result, PAYD concepts, if implemented, would likely be targeted to niche markets:
    • Introducing and packaging PAYD products to the public is important.  The following observations emerged from the market and field tests:
    • Target to the most receptive markets, as described above, in areas where significant travel options exist;
    • Explain the concept extremely clearly;
    • Structure the product so as to manage the degree of risk and uncertainty which the buyer would experience, such as by setting upside mileage limits on how high the variable costs could go;
    • Enable people to opt out if they are not comfortable with the product, and;
    • Provide significant cost savings potential.

Evaluation

  • The project was managed by Mn/DOT.  Cambridge Systematics conducted the market research and experimental components and administered the work of sub-consultants GeoStats and Market Line Research.
  • The experiment design was driven by a desire to conduct the most robust, statistically valid experiment on potential changes to driving behavior due to pay-as-you-drive pricing given the availability and capability of the technology to record mileage, as well as time and budget constraints.

Sources:
Value Pricing Program Quarterly Report:  3rd Quarter 2007.  Federal Highway Administration, Office of Operations (September 2007:  Washington, D.C.).

Minnesota Department of Transportation, Mileage-Based User Fee Demonstration Project Technology Inventory and Assessment.  Prepared by Cambridge Systematics, Geo Stats.  July 2003.
http://knowledge.fhwa.dot.gov/cops/hcx.nsf/All+Documents/A343FA0F1E07A15F85256DC00073F3E2/$FILE/MnDOT%20MBUF%20tech%20assessment%20final%20report%2009-03.pdf.
Minnesota Department of Transportation, Mileage-Based User Fee Demonstration Project Work Plan.  Prepared by Cambridge Systematics, et al.  December 2003.
http://knowledge.fhwa.dot.gov/cops/hcx.nsf/All+Documents/A343FA0F1E07A15F85256DC00073F3E2/$FILE/MnDOT%20Mileage_Work%20Plan_all-in-one.pdf.
Minnesota Department of Transportation, Mileage-Based User Fee Demonstration Project:  Pay-As-You-Drive Experimental Findings.  Final Report MN/RC – 2006-39A.  Prepared by Cambridge Systematics, et al.  March 2006.
http://www.lrrb.org/PDF/200639A.pdf.
Minnesota Department of Transportation, Mileage-Based User Fee Demonstration Project:  Market Assessment Survey Results.  Final Report MN/RC – 2006-39B.  Prepared by Cambridge Systematics, et al.  March 2006.
http://www.lrrb.org/PDF/200639B.pdf.
Minnesota Department of Transportation, Mileage-Based User Fee Demonstration Project:  Potential Public Policy Implications of Pay-As-You-Drive Leasing and Insurance Products.  Final Report MN/RC – 2006-39C.  Prepared by Cambridge Systematics, et al.  March 2006.

Table 5.3 Mileage-Based Road User Fee Evaluation in Oregon

Making Driver Costs Variable

Mileage-Based Road User Fee Evaluation in Oregon

Operations

  • The 2001 Oregon Legislature established the Road User Fee Task Force “to develop a design for revenue collection for Oregon’s roads and highways that could replace the current system for revenue collection.” The task force recommended that the Oregon Department of Transportation conduct a pilot evaluation program of the Oregon Mileage Fee Concept that would study:  1) the feasibility of replacing the gas tax with a mileage-based fee based on miles driven in Oregon and collected at fueling stations; and 2) the feasibility of using this system to collect congestion charges.
  • ODOT launched a 12-month pilot program in April 2006 designed to test the technological and administrative feasibility of this concept.
  • Implementation and study 2002-2005, Pilot program period 2006-2007.
  • Phase I of study demonstrated in-vehicle technology.  Twenty vehicles were equipped with on-board mileage reading devices a trial period for technology and to establish baseline-driving conditions in 4-month period.
  • Phase II of experimental study was a 5-month pilot program, including 285 volunteer vehicles, 299 motorists and two service stations in the Portland-metropolitan area that concluded in April 2007.
  • Three groups participated in the pilot study:
    • A “control” group of 10 vehicles in which technology was tested but no fees were assessed;
    • A fixed-fee “VMT” group of 95 vehicles that was subject to a flat mileage fee of 1.2 cents per mile, and;
    • A variable-fee “rush hour” group of 102 vehicles that paid mileage fees based on place and time of travel.  Mileage fees were discounted to 0.43 cents for travel during off-peak hours in certain zones and adjusted upwards to 10 cents for peak travel in congested zones and times.
  • The pilot study design held participants harmless by offering positive cash balances based on individuals’ baseline driving records, peak-travel charges were then subtracted from these endowment accounts with any positive balance paid to the participant.  This provided an incentive to modify travel behavior.
  • Oregon Department of Transportation administered the pilot program, Oregon State University, College of Engineering was contracted to provide technical design and evaluation services, Portland State University provided public-opinion research, and two fueling stations owned by Leathers Fuel Co. of Portland participated.
  • Reports to Legislature published 2003 and 2005.  Final report published November 2007

Cost, Finance, and Revenue

  • Total project cost was $2,935,679.  VPPP grant equaled $2,163,949 in three grants over six years.  State of Oregon contributed $771,730.
  • Program costs included equipment and administration to service stations, on-vehicle devices to drivers, and administration and collection to DOT.  Planning, design, and implementation costs accounted for 40 percent of budget, pilot operations 50 percent, and evaluation and other costs 10 percent.
  • Mileage-fee designed to be revenue-neutral for State.  Flat fee of 1.2 cents per mile charged, current gas tax is 24 cents per gallon; congestion-pricing fee of 10 cents per mile was charged to rush hour group.

Policy/Institutional

  • Enabling legislation enacted in 2001 established The Road User Fee Task Force, a 12-member group created by the Oregon Legislature in 2001, to oversee evaluation of the Oregon Mileage Fee Concept.
  • Legislation mandated revenue neutrality, so that revenue from mileage-fee pilot not exceed that collected from gas taxes.
  • Privacy protection concerns dictated that there be no central data storage or transmission of vehicle location or trip data – only vehicle identification, total zone mileage, and purchased fuel totals collected by State.

Outreach/Acceptance

  • Task Force held three public hearings before implementation, made 25 formal presentations across the country during the pilot, invited other state officials to visit, and regularly updated U.S. DOT, ODOT, and Oregon Legislature.
  • Study participant communications included regular updates of endowment account balances and information through newsletters.
  • Initial media reactions were negative due to inaccurate assumptions about the mechanics of the program, including data collection, pricing, operations, etc.  Reporting accuracy improved over time and media began to report favorably on the program, according to program evaluators.
  • From outreach efforts, the broad public concerns were identified as:  privacy protection, mileage rate setting equity (flat versus tailored fee, varied fees for high versus low-fuel efficiency vehicles), fairness in system, technological reliability, and the cost of implementation to the state, businesses, and vehicle owners.

Technology

  • Hybrid transponder used GPS signals to identify zone location and used the vehicle’s odometer to tabulate miles traveled within zones.
  • Fueling stations equipped with RFID reader detected on-vehicle device at pump; on-vehicle device transmitted mileage information and identification number; central accounting system assessed mileage fee and deducted gas tax, charges administered at point-of-sale in the exact same method as a typical gas-tax transaction.
  • Operational performance varied with technological adaptation as the pilot program constantly changed or updated technology to overcome problems or to better the system.  Common problems included:  1) 77-80 percent accuracy in pump-to-vehicle identification, i.e., 20 percent of the time participant vehicles were not identified and charged gas-tax alone; and 2) each vehicle had to have custom installation of on-vehicle device – there was no universal system across vehicle manufactures and vehicle ages.
  • Mileage readers and fee assessments were proved to be highly accurate and were double-checked by car odometers and fuel purchases.

Equity/Environmental

  • Economic equity or environmental assessments were not explored, but will be addressed in future studies.

Impacts

Participants reduced average miles driven per day by:

Measure/Group

Average Total Miles per Day

Average Peak Miles per Day

Average Off-Peak Miles per Day

Control

-0.7 %

+17 %

-6 %

Flat-Fee VMT

-13 %

+11 %

-12 %

Rush Hour

-16 %

-16 %

-14 %

(Note:  All findings considered statistically significant.)
Other statistically significant findings include:

  • There was a 22 percent reduction in peak-hour miles traveled for the group that was charged more for peak hours.
  • All participants with transit access reduced VMT by 0.7 miles per day.
  • Participants with children under 16 reduced VMT by 0.7 miles per day.
  • Participants who self-identified with the attitude that they would always drive increased VMT by 4 miles per day, regardless of pricing group.
  • Twelve of 84 households in the rush hour group reported that a household member began using public transit to save money.  Ten of 79 households in the flat-fee group reported mode changes to transit.
  • Qualitative evaluation of the program by managers and owners of service stations reported that technological integration with existing computer systems and equipment installation was a burden, but reported no change in workload of service station attendants or fueling operations.
  • Surveyed dissatisfaction among participants was mostly a result of temporary pilot problems and not a reaction to concept.
  • 91 percent of pilot program participants agreed that if the program were enacted statewide they would continue paying the mileage fee in lieu of the gas tax.

Evaluation

  • The study was nonrandom and biased by participant self-selection and program influence (increased interest and knowledge in transportation alternatives may have caused some behavior changes).
  • Evaluation criteria established by the Road User Fee Task Force included:  1) Administrative feasibility; 2) Cost; 3) Net Revenue Generation Capability; 4) Hardware and Software; 5) Precision; 6) Evasion Potential; 7) Usefulness of Phasing and Planning Potential; 8) Adaptability to Congestion Pricing; and 9) Public Acceptance.

Sources:
Oregons Mileage Fee Concept and Road User Fee Pilot Program:  Final Report.  Oregon Department of Transportation, Office of Innovative Partnerships and Alternative Funding (November 2007:  Salem, Oregon).
http://www.oregon.gov/ODOT/HWY/RUFPP/docs/RUFPP_finalreport.pdf.
Value Pricing Program Quarterly Report:  3rd Quarter 2007.  Federal Highway Administration, Office of Operations (September 2007:  Washington, D.C.).

Table 5.4 Global Positioning System (GPS)-Based Pricing in the Puget Sound Region, Washington

Making Driver Costs Variable

Global Positioning System (GPS)-Based Pricing in the Puget Sound Region, Washington

Operations

  • The project is the first large-scale operational test showing the feasibility of areawide road use and congestion-based charging.  The Traffic Choice Study was designed explicitly to capture behavioral response to network tolls in an experimental setting.
  • Pre-toll data collection operations for the project began in February 2005.  Toll operations began on July 1, 2005 and were completed on March 31, 2006.
  • During the field test, the project team fielded hundreds of customer service calls, issued over 4,000 billing invoices, logged over 100,000 data transactions to the central system, and recorded over 750,000 individual participant trip records.
  • In the pilot field test, mileage meters were placed in the vehicles of over 257 households and over 400 voluntary participants.
  • Randomly selected from an enriched pool of potential participant households.
  • Different prices per mile were imposed depending upon the location (type of roadway) and time of travel on all major roads in the Puget Sound region.
  • Drivers were made aware of the pricing both though toll maps, tariff model graphics, and other printed material, in conjunction with real-time read-out on the in-vehicle meter, as well as on web pages.
  • At the start of the pilot, each participating household was provided a unique travel endowment account based on their baseline travel behavior.
  • Any cumulative in-vehicle meter charges were debited against this balance.  Any funds remaining in the account at the end of the pilot were kept by the participants.  This “hold-harmless” study design gave participants the opportunity to participate without committing their own funds, yet also gave them the incentive to adjust their driving behavior so as to enjoy the surplus remaining in the account at the end of the experiment.

Cost, Finance, and Revenue

  • FHWA VPPP funds of $1,800,000 awarded in 2002 and supplemental grant of $600,000 awarded in 2005.
  • Revenue and cost estimates difficult early on, and only sketch analysis results are available.  Final numbers depends upon final equilibrium toll values.
  • Preliminary revenue estimates for time, distance, place tolling proceeds (order of magnitude) could equal approximately $1.5-$2.5 billion per year.
  • Preliminary cost estimates for a distance tolling system could equal initialization costs of approximately $0.75-$1.5 billion and operations could equal 5-10 percent of proceeds.

Policy/Institutional

  • Administered by the Puget Sound Regional Council.  The region’s long-term transportation plan Destination 2030 recommended planning, designing, and implementing a roadway pricing demonstration program.
  • The Puget Sound Regional Council is the regional transportation, economic and growth planning agency for the central Puget Sound region of Washington State.  The Regional Council serves as a forum for cities, counties, ports, transit agencies, tribes, and the State to coordinate on important regional issues.

Outreach/Acceptance

  • Survey responses both substantiate the data results and provide evidence for a causal relationship.  Seventy percent of participants stated they changed their behavior in response to the tolls.

Technology

  • Project participants were equipped with GPS/GSM tolling on-board units for OBU-based tolling.  Meters communicated to central system via GPRS.
  • Used Siemens ITS off-the-shelf tolling system solution.  Siemens was responsible for developing the software, providing the in-vehicle on-board units and integrating all the systems and components.
  • By relying on in-vehicle meters, the need for expensive wayside antennae is eliminated, and even arterial roads can be priced cost-effectively.
  • Web-based participant accounts were established, and the user interface successfully provided access to household-level travel information, account balance, invoices, and customer support.
  • Toll values were displayed in the participant on-board-units along with the name of the road being tolled.

Equity/Environmental

  • Not available in preliminary analysis.

Impacts

  • Almost 80 percent of the households drove less and/or reduce their exposure to tolls in other ways!
  • Preliminary analysis estimated short-run demand elasticities in the range of -0.12, which translated into approximately 10 percent reduction in vehicle use during peak travel times, with considerably more traffic reduction on specific facilities.  Results suggest there is a practical opportunity to reduce wasted time resources and convert them to significant revenues for investment:
    • During the a.m. peak travel period (6:00 a.m. to 9:00 a.m.).
    • Tolls could reduce household automobile trips approximately 10 percent.
    • Tolls could reduce vehicle miles traveled approximately 4 percent.
    • During the p.m. peak travel period (4:00 p.m. to 7:00 p.m.).
    • Tolls could reduce household automobile trips approximately 6 percent.
    • Tolls could reduce vehicle miles traveled approximately 11 percent.
    • Estimated Elasticities with Regard to Variable Costs of Automobile Use

Metric

A.M. Peak

Midday

P.M. Peak

Evening

Night
(Early A.M.)

Trips

-0.1610

-0.1560

-0.0996

-0.1290

0.0532

VMT

0.0531

0.1806

-0.1803

0.0491

0.3326

Hours

0.0019

0.2483

0.0795

0.0970

0.5346

  • Detailed analysis of the behavior data were carried out over the subsequent 6 months and beyond.
  • To date the project has contributed significantly to knowledge related to the application of road use charging.  Valuable information collected included:  road user choice and behavior under a broadly implemented and sustained tolling treatment; proof of technical applications and systems design; and assistance in identifying and understanding key policy variables and requirements.
  • Also, the project team will begin processing participant payment and conduct some qualitative research relating to participant experiences and perceptions.

Evaluation

Key methodological features included:

  • True price incentive.
  • Baseline and experimental treatments (tolls).
  • Controls for self-selection, attrition, seasonality, etc.
  • Time-of-day pricing.
  • Multiple sources of price information (in-vehicle display, accounts, invoices).

Sources:
Puget Sound Regional Council, Traffic Choices Study, available at http://www.psrc.org/projects/trafficchoices/index.htm.
Aubrey Davis and Matthew Kitchen, Puget Sound Regional Council, Puget Sound Traffic Choices Study.  Presentation to Washington State Transportation Commission, November 2006.
http://wstc.wa.gov/AgendasMinutes/agendas/2006/Nov14/Nov14_BP2_PSRC_TrafChoicesStudy.pdf.