Guidebook and Toolkit on Environmental Justice Analyses in Tolling - Webinar
April 4, 2018
Toll Relief
Grindly Johnson, Deputy Secretary of Administration,
Commonwealth of Virginia
Shannon N. Marshall, APR,
Communications Director, Virginia Department of Transportation April
4, 2018
Why is the Commonwealth offering Toll Relief?
The Commonwealth of Virginia developed its Toll Relief Program to
help ease the financial burden of Elizabeth River Tunnels' tolls on
those residents most impacted.
How is the Toll Relief Program funded?
Elizabeth River Crossings, operators of the Elizabeth River Tunnels,
agreed to pay $500,000 a year to the Virginia Department of Transportation
(VDOT) for 10 years to help offset the cost of tolls on those users
most financially stressed.
How was the Toll Relief Program developed?
Toll Relief Steering Committee
- Made up of VDOT, NAACP, Hispanic Chamber of Commerce, military,
education, social services, local government and consultant representatives
- Created to provide input and guidance on program development
- Met monthly
Why is the Toll Relief Program only open to qualified Norfolk
and Portsmouth residents?
In order to provide meaningful financial relief, the program is focused
on helping those individuals who need it the most.
Research conducted by the VDOT, showed Norfolk and Portsmouth residents
were most-heavily impacted by Elizabeth River Tunnels tolls.
What are the Requirements to Participate in the Toll Relief
Program?
To qualify for Toll Relief, participants must:
- Reside in Norfolk or Portsmouth
- Earn $30,000 or less per year
- Have or open a Virginia E-ZPass account
Why are participants required to have or open a Virginia
E-ZPass account?
E-ZPass is the cheapest and easiest way to travel through the Elizabeth
River Tunnels.
Individuals who do not have a Virginia E-ZPass account can open one
with $35, all of which goes to the payment of tolls.
There are no additional costs or processing fees.
What are the benefits of Toll Relief?
Once a
participant's Virginia E-ZPass transponder records eight or more trips
through the Downtown or Midtown tunnels during a calendar month, a one-dollar
per trip refund is credited to his or her Virginia E-ZPass account.
There is no limit on the number of discounted trips in a month.
How do individuals apply for Toll Relief?
The Toll Relief application process was designed to be quick and
easy.
It begins with an in-person application at either the Norfolk or
Portsmouth E-ZPass Customer Service Centers.
Proof of income and residency must be presented at the time of application.
One of the following is required for proof of residency:
- Driver's License
- Utility\Telephone\Cable Bill
- Checking\Savings Account Statement
- Property Tax Bill
- Mortgage - Proof of Ownership
- Rental Contract
- Military Documentation Confirming City of Residence
One of the following is required for proof of income:
- W-2
- 1099-Misc
- One Month of Paystubs
- IRS 1040
- Employer's Statement
- Self-Declaration of No Income
Annual Toll Relief Enrollment Period and Important Dates
- Enrollment Period
- Toll Relief Benefits Begin
- First Toll Relief Rebate Distributed
Communications and Outreach
- Toll-free Number
- Website
- Postcard/Mailer
- On-site application process at local mall
- Social Media
- Earned Media
Toll Relief Program Statistics
2017 Program Enrollment
- 2,094
Toll Relief Rebate Distributed - $458K
Average Monthly Rebate - $30.53
2018 Program Enrollment - 2,909
Contact Information
Grindly Johnson
Deputy Secretary
of Administration, Commonwealth of Virginia
Grindly.Johnson@VDOT.Virginia.gov
804-225-4822
Shannon N. Marshall, APR
Communications Director,
Virginia Department of Transportation
Shannon.Marshall@VDOT.Virginia.gov
804-371-6844
Assessing the Environmental Effects of Toll Implementation
or Rate Changes: Guidebook and Toolbox
NCHRP Report 860
Congestion Pricing Webinar: Guidebook and Toolkit for Environmental
Justice Analyses in Tolling
Louis Berger
Rutgers
Edward J. Bloustein School of Planning and Public Policy
Introduction
Purpose of the Guidebook and Toolbox
Show
how to incorporate environmental justice analysis in the context of
tolling.
- Provide a set of tools to enable analysis and measurement of
impacts of toll pricing, toll payment, toll collection technology,
and other aspects of toll implementation and rate changes on low-income
and minority populations.
- The Guidebook shows when and how to apply the tools
in the Toolbox through an 8-step process framework and
cross-referencing.
- Process framework corresponds with the typical transportation
project planning and development process.
- Framework and supporting tools show how to measure tolling-related
changes on such factors as mobility, access, and household expenditures,
and illustrate how to engage low-income and minority populations
in the evaluation process.
Guidebook and Toolbox Organization
Scalable to potential for disproportionately high and adverse
effects.
Guidebook
Text of the Steps chart:
Step 1 |
Frame the Project |
Step 2 |
Identify the Applicable Requirements Governing Decisions |
Step 3 |
Recognize the Relevant Decision-Makers and Stakeholders: Roles, Responsibilities and Key Concerns |
Step 4 |
Scope Approach to Measure and Address Impacts |
Step 5 |
Conduct Impact Analysis and Measurement |
Step 6 |
Identify and Assess Mitigation Strategies |
Step 7 |
Document Results for Decisionmakers and Public |
Step 8 |
Conduct Post-Implementation Monitoring |
Toolbox
Principles of Environmental Justice (EJ)
FHWA Environmental Justice Reference Guide (2015)
U.S. DOT's EJ strategy identifies three fundamental principles of
environmental justice:
- To avoid, minimize, or mitigate disproportionately high and
adverse human health and environmental effects, including social
and economic effects, on minority populations and low-income populations.
- To ensure the full and fair participation by all potentially
affected communities in the transportation decision-making process.
- To prevent the denial of, reduction in, or significant delay
in the receipt of benefits by minority and low-income populations.
Rationale for the Guidebook and Toolbox
- Tolling has become more prevalent as a funding mechanism and
an operations strategy for transportation facilities.
- Effects from toll implementation and rate changes can cause
direct, indirect and cumulative impacts.
- Toll implementation has benefits but may, in some cases, create
burdens that have the potential for disproportionately high and
adverse effects on low-income and minority populations.
- Need for analytical tools to assess, evaluate and, if necessary,
mitigate impacts from toll implementation or rate changes on low-income
and minority populations.
Guidebook Walkthrough
Step 1: Frame the Project
Identify the type of tolling action from among a range of types.
1. New Toll Road or Bridge (mix of toll and general purpose
lanes) |
2. New Toll Road or Bridge (all toll lanes) |
3. Partial Conversion of Existing Highway, Bridge or Tunnel
Travel Lanes for Tolling (mix of toll and general purpose lanes) |
4. Full Conversion of Existing Highway, Bridge or Tunnel
Travel Lanes for Tolling (all toll lanes) |
5. Partial Conversion with Widening of a Highway, Bridge,
or Tunnel (mix of toll and general purpose lanes) |
6. Full Conversion with Widening of a Highway, Bridge, or
Tunnel (all toll lanes) |
7. Increase Tolls on an Existing Toll Facility |
8. Change in Method of Payment on Existing Facility |
9. Change Toll Collection Technology on an Existing Toll
Facility |
10. Introduce Variable or Dynamic Tolls on an Existing Toll
Facility |
11. Change Operator of an Existing Toll Facility |
Step 1: Frame the Project
Identify the impact-causing aspect(s) associated
with the type of action.
Introduce Transaction Cost |
Increase Transaction Cost |
Create Uncertain Transaction Cost |
Form of Payment and/or Credit and/or Fixed Cost Requirements
for User
Accounts |
Change in Access to Highway Network |
Create or Increase Highway, Bridge or Tunnel Footprint* |
Decrease Distance between Community and Highway, Bridge
or Tunnel* |
* The Guidebook primarily covers the travel behavior and socioeconomic
effects of tolling on roadway users. Although covered in the Guidebook,
lesser attention is given to facility footprint and proximity impacts
as these topics are extensively covered in other literature.
Step 1: Frame the Project
Identify potential adverse direct effects to
users.
- Change in road use patterns (diversions to alternative route(s)
or mode(s)).
- Change in trip-making behavior and trip purposes (trip frequency,
trip timing).
- Change in household disposable income and change in household
financial burden.
- Change in "disposable time."
Step 1: Frame the Project
Identify potential adverse indirect effects that could stem from direct effects.
- Effects related to route and modal diversions,
such as:
- change in mobility between travel points.
- change in accessibility to destinations.
- change in travel reliability.
Increased travel on alternative route(s) or mode(s) leads to degradation
of level of service on the alternative route(s) or mode(s).
- Changes in health (air quality, noise, vibration) for residents
nearby alternative route(s) that have degradation in level of service.
- Changes in quality of life from:
- reduced opportunities for employment and services because
of degraded accessibility, mobility, and travel reliability.
- delayed or foregone activities and purchases because of
reduced disposable income or less available time outside of
travel time.
- degraded environmental quality and pedestrian safety along
alternative route(s).
Step 1: Frame the Project
Context considerations.
- A toll implementation or rate change action occurs within a
regional transportation network that connects people to community,
housing, jobs, health care, education, services, religious, recreational,
social, and retail opportunities.
- The roadway network provides access to these opportunities.
- The ability to benefit from these opportunities can be influenced
by the affordability of transportation, expressed as both cost and
time, to travel to places where such opportunities are located.
- The contextual assessment enables inquiry into potential "tipping
points" for adverse EJ effects of the tolling action and aids
in demarcating a preliminary study area of potential effects.
Step 2: Identify Applicable Requirements Governing Tolling Decisions
Policy and planning stage of decision-making (Reference Table
2.1)
Regulation/Policy |
Criteria |
Title VI of the Civil Rights Act of 1964/EO
12898/DOT Order 5610.2(a) |
EJ populations provided opportunities for involvement and
input in the creation of the Long Range Transportation Plan
(LRTP) and State Transportation Improvement Program/TIP alternatives |
23 CFR 450.216 (fiscal restraint requirements prior to determination
of Categorical Exclusion, Finding of No Significant
Impact, or Record of Decision) |
LRTP identifies tolling as a goal, objective,
or strategy
|
LRTP financial plan and STIP/TIP reflect anticipation of
funding
from tolled projects |
Specific tolling projects
are included in the STIP or TIP |
23 CFR 771.111 and 23 USC 139(b)(3) (early coordination,
public involvement, and project development) |
LRTP analyzes impacts of tolling alternatives |
FAST Act and MAP 21 - Toll Pilot Programs -
Require MOU with FHWA and annual audits |
Project utilizes state bonds, private activity bonds, or
other U.S. DOT-approved financing instruments. |
FAST Act Section 1411 (tolling, HOV facilities,
Interstate reconstruction and rehabilitation) |
Allows states to consider the use of tolls for the reconstruction
and rehabilitation of the Interstate System in their respective
states. |
Clean Air Act* (National Ambient Air Quality
Standards) |
Consistent with regional air quality goals as determined
in the LRTP |
Step 2: Identify Applicable Requirements Governing Tolling Decisions
Project development and implementation stage (reference table
2.1)
Regulation/Policy |
Criteria |
NEPA, 40 CFR 1500-1508 (NEPA Regulations) |
NEPA review |
Qualifies for CE |
Requires EA |
Results in FONSI |
Requires EIS |
Requires ROD |
23 CFR 771 (FHWA NEPA Regulations) |
EJ populations provided opportunities for involvement and
input in
the development of the project (§771.105, §771.109) |
EO 12898 |
Directs federal agencies to identify and address the
disproportionately high and adverse human health or environmental
effects of their actions on minority and low-income populations |
EO 13166 |
Required federal agencies to develop and implement a system
to provide those services so limited English proficiency
persons can have meaningful access to services |
Clean Air Act* (NAAQS) |
Requires "hot spot" analysis due to non-attainment
and a potential significant impact on the human environment |
Requires quantitative mobile source air toxics evaluation |
23 USC 327: Surface Transportation Project Delivery
Program |
State DOT is delegated review authority of EJ analysis |
U.S. DOT maintains review authority of EJ analysis |
Step 3: Recognize Relevant Decision-Makers and Stakeholders
Users, affected communities, professionals, and sponsor and review
entities.
- Early and continuous communication and coordination to determine whether or not there is a potential for
disproportionately high and adverse effects on minority and low
income populations.
- Ensure the full and fair participation by all potentially affected communities in the transportation
decision-making process.
- Prevent the denial of, reduction in, or significant delay in
the receipt of benefits by minority and low-income
populations.
Step 4: Scope Approach to Measure and Address Impacts
Concurrently.
- Refine the project study area as initially defined in Step 1,
as necessary.
- Identify demographic characteristics of populations in the study
area beginning with early screening of community characteristics
and building on data and relationships established in Steps 1-3.
- Work with the public, including EJ populations, to identify
potential adverse and beneficial impacts of tolling and address
questions, expectations, and concerns.
Step 5: Conduct Impact Analysis & Measurement
Mobility and access measurement of impact severity on EJ populations.
- The mobility and access tools identified in this step are designed
to help determine:
- who benefits and who is burdened by toll implementation or rate
changes.
- the size of the benefit or burden.
- whether the burdens are principally borne by or appreciably
more severe or greater in magnitude for EJ populations.
- Relative comparison of "with toll" vs. "without
toll" or "with rate change" vs. without rate change."
- Regional travel demand models can be adapted to assess potential
changes in travel behavior, e.g., trip diversions from tolling and
resulting changes in trip lengths and travel times.
Step 6: Identify and Assess Mitigation Strategies
Is there a disproportionately high and adverse effect and what
to do about it.
- Systemwide analysis for considering and addressing impacts through
the long-range transportation planning process.
- Regionwide (statewide) toll policies.
- Implementation of toll network over time.
- Methods of toll collection.
- Policies regarding the use of toll revenue and/or mitigation
measures.
- Limited English proficiency provisions in accessing toll
facilities.
- Cumulative impact considerations over time at regional scale.
- Project-level analysis
- Localized impacts on access, mobility, and travel costs.
- Cumulative impacts of successive toll rate changes in combination
with other actions in the study area.
Step 7: Document Results Decision-Makers and the Public
Record of the process and defensibility of findings.
- Demographic data, e.g., race, color, national origin, limited
English proficiency, and income, related to transportation data.
- Study area boundaries (reasonable and logical?).
- Adverse effects, if any, that disproportionately impact minority
and/or low-income individuals.
- Engagement with potentially impacted minority and low-income
populations and resulting input integrated into study area geography
and analysis of effects.
- Consideration of effects in decision-making.
Step 8: Conduct Post-Implementation Monitoring
- Establish performance metrics upfront.
- Monitor actual vs. predicted effects and address negative deviations.
Example Mitigation Measures and Commitments for Tolling Projects
- Net revenues used to subsidize transit services
- Net revenues used to fund other prioritized projects
- Free or reduced cost for initial transponder purchase
- Waiver of maintenance fee for toll account tied to low-income
eligibility
- No minimum balance for toll account
- Toll credits tied to transit use
- Toll credits or discounts tied to low-income eligibility
- Toll credits tied to local access impacts
- Travel credits earned on general purpose lanes to access managed
lanes free
- Minimum access to managed lanes for all registered users
- Convenient opportunities for cash replenishment
- Free local access to a bridge or toll road for local trips
Toolbox Walkthrough
Toolbox
Elements of the Toolbox
Tools |
|
Case Examples |
|
Public Involvement |
|
Checklists |
|
Reference Tables |
|
Scenarios |
|
Toolbox
Tools
Tools |
Framework Steps |
Step 3 Recognize the Relevant Decision-Makers and Stakeholders |
Step 4 Scope Approach to Measure and Address
Impacts |
Step 5 Conduct Impact Analysis and Measurement |
Step 6 Identify and Assess Mitigation Strategies |
Step 7 Documenting Results for Decision- Makers
and Public |
Step 8 Conduct Post- Implementation Monitoring |
Developing a Socioeconomic Profile and Community Characteristics
Inventory for EJ Assessments |
|
X |
X |
|
|
|
Using Public Use Microdata Samples to Profile Transportation
Characteristics and Differences |
|
X |
|
|
|
|
Using the National Household Travel Survey to Profile
Transportation Characteristics and Differences |
|
X |
|
|
|
|
Preparing, Implementing, and Assessing a Public Involvement
Plan |
X |
X |
X |
X |
X |
X |
Using Focus Groups in Assessing the Impact of Tolling
on EJ Populations |
|
X |
|
X |
|
X |
Toolbox
Tools
Tools |
Framework Steps |
Step 4 Scope Approach to Measure and Address Impacts |
Step 5 Conduct Impact Analysis and Measurement |
Step 6 Identify and Assess Mitigation Strategies |
Step 7 Documenting Results for Decision-Makers and Public |
Step 8 Conduct Post-Implementation Monitoring |
Designing and Executing Surveys to Assess Attitudes
and Travel Behavior for EJ Analyses and to Monitor Implementation |
X |
X |
X |
|
X |
Using Travel Demand Models for EJ Assessments |
X |
X |
X |
|
X |
Applying a Select Link Analysis to Assess Trip Patterns |
|
X |
X |
|
X |
Analyzing the Value of Time / Willingness to Pay in
EJ Assessments |
X |
X |
X |
|
X |
Assessing User Costs and Household Burden Effects |
X |
X |
X |
|
|
Toolbox
Tools
Tools |
Framework Steps |
Step 4 Scope Approach to Measure and Address Impacts |
Step 5 Conduct Impact Analysis and Measurement |
Step 6 Identify and Assess Mitigation Strategies |
Step 7 Documenting Results for Decision-Makers and Public |
Step 8 Conduct Post-Implementation Monitoring |
Evaluating Disproportionate Effects with Quantitative
Methods |
|
|
X |
|
|
Instituting Cash Replenishment Options for Unbanked
and Underbanked Populations |
|
|
X |
|
|
Recycling Tolling Revenue through Transit Investment
and Low-Income Assistance as Forms of Mitigation |
|
|
X |
|
X |
Examining Spatial Patterns and Distribution of Users
on Existing Tolling Facilities |
|
|
|
|
X |
Tool Layout/Template
Tool Organization and Questions Answered
- What Is It?
- Why Is It Effective in EJ Analysis?
- What Are Some Techniques for Implementing This Tool?
- What Are Its Limitations?
- What Types of Resources and Costs Are Required?
- Who Has Used It Successfully?
- Resources
Summary Textbox:
- Framework Step
- Stages in Decisionmaking
- Tools and Techniques
- Affected Populations
- Examples Featured
Tool Example: Preparing, Implementing, and Assessing a Public Involvement
Plan
Techniques Outlined in the Tool
- Preparing and implementing the public involvement plan
- Prepare or review social and economic profile of study and project
area
- Initial site visits to establish scope of PIP
- Develop and maintain community contacts lists
- Prepare a limited English proficiency (LEP) plan
- Use "I speak" cards to ensure communications with
LEP populations
- Offer assistance for hearing impaired
- Offer assistance for sight impaired
- Offer refreshments
- Brand project through clothing and other paraphernalia
- Provide information
- Distribute Flyers
- Publicize through local and ethnic media outlets
- Advertise on billboards, marquees, and variable message signs
Tool Example: Preparing, Implementing, and Assessing a Public Involvement
Plan
Techniques Outlined in the Tool (cont.)
- Use videos to convey information
- Employ visualization techniques
- Gather feedback
- Conduct outreach at nontraditional locations
- Go to "their" meetings
- Go to faith-based institutions
- Conduct market research interviews and focus groups
- Undertake surveys to understand needs, preferences, and impacts
- Use computer-assisted technologies to explore preferences
- Build relationships
- Form advisory boards, committees, taskforces, and working groups
- Foster understanding of communities through relationships with
community organizations and other local experts
- Recruit and mobilize "community ambassadors," "beacons,"
or "trusted advocates"
- Document "everything"
Tools
Featured Tool Example
- Recycling Toll Revenue through Transit Investment
and Low-Income Assistance as Forms of Mitigation
- Toll Relief Program, Elizabeth River Tunnels, Norfolk-Portsmouth
Area
Case Examples
Case Examples in Toolbox
Case Examples |
Framework Steps |
Step 4 Scope Approach to Measure and Address Impacts |
Step 5 Conduct Impact Analysis and Measurement |
Step 6 Identify and Assess Mitigation Strategies |
Step 7 Documenting Results for Decision-Makers and Public |
Step 8 Conduct Post-Implementation Monitoring |
Conducting Citizen Panels to Explore Key Issues of Value
Pricing, Minneapolis-St. Paul Region, Minnesota |
X |
|
|
|
|
Using an EJ Index to Identify Affected Populations,
Dallas-Fort Worth Metro Region |
|
X |
|
|
|
Mobilizing a Local Liaison to Recruit Community Leaders
for Survey, Louisville- Southern Indiana Ohio River Bridges
Project |
X |
|
X |
|
|
Targeting Local Grocery Stores to Administer Community
Surveys, Louisville-Southern Indiana Ohio River Bridges |
X |
|
X |
|
|
Case Examples
Case Examples in Toolbox
Case Examples |
Framework Steps |
Step 4 Scope Approach to Measure and Address Impacts |
Step 5 Conduct Impact Analysis and Measurement |
Step 6 Identify and Assess Mitigation Strategies |
Step 7 Documenting Results for Decision-Makers and Public |
Step 8 Conduct Post-Implementation Monitoring |
Analyzing, Mitigating, and Monitoring Impacts on Low-Income
Commuters, I-10 and I-110 Express Lanes, Los Angeles County |
|
|
X |
|
X |
Mitigating Reduced Access via Toll Credits, Dallas-Fort
Worth Metro Region |
|
|
X |
|
|
Selecting a Design Alternative to Mitigate the Adverse
Effects on a Low-Income Community, St. Johns River Crossing,
Clay and St. Johns Counties, Florida |
|
|
X |
|
|
Conducting Pre-and Post-Implementation Surveys of Traveler
Behavior and Opinions, Atlanta Region, I-85 Corridor |
X |
X |
|
|
X |
Case Example Layout/Template
Case Example Organization and Topics Covered
- Background
- How It Was Done
- Resources and Costs
- Benefits: Why It Was Effective
- Challenges and Limitations
- Lessons Learned
- Resources
Summary Textbox:
- Framework Step
- Stages of Decisionmaking
- Tools and Techniques
- Affected Populations
- Participants
Case Examples
Featured Case Example
- Conducting Pre-and Post-Implementation Surveys of Traveler
Behavior and Opinions, Atlanta Region, I-85 Corridor
Checklists
- Project Framing Checklists (Step 1)
- Types of Toll Implementation and Rate Change Actions and Associated
Impact- Causing Aspects
- Potential Adverse Direct and Indirect Effects
- Context Considerations
- Documentation Checklist (Steps 4 through 8)
- Template that can apply to all resource topic areas
Reference Tables
- Applicable Requirements Governing Tolling Projects (Step
2)
- Decision-Makers and Stakeholders: Actions, Decisions and Concerns
(Step 3)
- Examples of Resource Topic Considerations Added by Tolling (Step
4)
- EJ Assessment Methods by Resource Topic Area (Step 5)
- Qualitative versus Quantitative Evaluations of Resource Topics
(Step 6)
Text of Steps Chart:
Step 1 |
Frame the Project |
Step 2 |
Identify the Applicable Requirements Governing Decisions |
Step 3 |
Recognize the Relevant Decision-Makers and Stakeholders: Roles, Responsibilities and Key Concerns |
Step 4 |
Scope Approach to Measure and Address Impacts |
Step 5 |
Conduct Impact Analysis and Measurement |
Step 6 |
Identify and Assess Mitigation Strategies |
Step 7 |
Document Results for Decisionmakers and Public |
Step 8 |
Conduct Post-Implementation Monitoring |
Reference Tables
The actions, decisions and concerns of various agencies and stakeholders
during 1) policy and planning; 2) project design / NEPA; and 3) implementation
Decision-makers & Stakeholders |
Tolling Lens |
Environmental Justice Lens |
U.S. DOT & FHWA |
|
|
State DOTs |
|
|
MPOs |
|
|
Public Tolling Authorities |
|
|
State Legislature/State Governments |
|
|
Local Governments |
|
|
Public Transportation Agencies |
|
|
Public Private Partnerships and Private Sponsors |
|
|
Private Investors and Holders |
|
|
Permit Agencies |
|
|
Research Institutions |
|
|
Social Service, Community and Advocacy-Based Organizations |
|
|
Communities of Concern; Affected Populations |
|
|
Reference Tables
Examples of Resource Topic Considerations Added by Tolling -
Categories |
Resource Topic |
Questions |
Mobility, Access & Safety |
Mobility and Access - Accessibility |
- Will the toll or the toll pricing policies result in
low-income drivers being "priced out" or excluded
from certain trips?
- What reasonable alternative transportation modes are
available to those who cannot afford the toll?
- Are there adequate non-tolled corridors to serve as
alternative roads?
- If pricing yields travel-time savings, are they experienced
by all users
|
Route, mode and trip- time - transportation choice |
- Will the additional travel costs result in lower-income
users choosing to use less desirable (to them) modes or
routes to meet their mobility needs?
- Will low-income commuters change their travel times
to avoid tolls or to avoid congestion on non-toll routes?
- Will the toll facility impact transit (e.g., altered
bus routes, transit times/schedules)?
|
Safety |
- Will the toll facility divert a substantial amount of
traffic through an EJ community?
- Will diverted traffic through EJ communities impose
a higher safety risk to local pedestrians and bicyclists?
|
Scenarios
- Scenario A: Untolled Bridge to Tolled Bridge, P3
- Scenario B: HOV Lanes to HOT Lanes
- Scenario C: Rate Change
Future Research Needs
Potential areas for research or implementation beyond the scope of
the study.
- Convert Toolbox and Guidebook into online resource for practitioners.
- Establish data clearinghouse for Environmental Justice and Tolling,
including such topics as:
- Pre- and post implementation monitoring of effects
- Survey design, sampling approaches, and findings on attitudes
and travel behavior for low-income and minority populations
- Weighting factors for travel demand models to reflect low-income
populations and values of time
- Additional guidance from FHWA on analytical methods and required
documentation to evaluate toll implementation, rate changes
- Suggest FHWA guidance for analyzing and evaluating regional
effects of tolling impacts akin to FTA Title VI guidance for
transit projects for service equity.
Questions?
Contact:
Lawrence Pesesky (PI): lpesesky@louisberger.com
David Aimen (Co-PI): david.aimen@ejb.rutgers.edu
Equity Issues Related to Full Facility Variable Tolling: Evidence
from a Panel Survey of SR 520 Corridor Users In Seattle
March 20, 2018
Volpe
The National Transportation Systems Center
Advancing
transportation innovation for the public good
U.S. Department of Transportation
Office of the Secretary
of Transportation
John A. Volpe National Transportation
Systems Center
Survey Overview
Background & Study Motivation
- Urban Partnership Agreement/ Congestion Reduction Demonstration
Programs
- strong emphasis on evaluation and learning
- FHWA-sponsored evaluation at all six UPA sites, plus in-depth
household surveys in Seattle and Atlanta to study impacts on traveler behavior
- Understand how road pricing affects travelers -
surveys provide insights that cannot be measured through vehicle counts,
speed data
- In what ways do individuals change their travel?
- How does road pricing affect their attitudes & opinions
about their travel?
Study Questions
How does road pricing impact:
- Route Choice
- Mode choice (transit, carpooling, telecommuting)
- Origin-destination patterns
- Trip departure times
- Overall Vehicle Miles Traveled
- Equity
Approach and Methodology
- Household Panel Study: same households before and after tolling
- 2-day travel diary plus questions on demographics, typical
commute, technology ownership, attitudes
- Sample corridor users
- Drivers: license plate capture during AM and PM peak, with
match to registered address; mail study invitations to households
- Transit intercept in-person
- Vanpool members: via email to vanpool participants
- Invite ALL adult members of household to participate
- Online survey with option to take by phone
- Incentives ($15/$30 Amazon gift card)
- Pilot Study
Survey Recruitment
- Advance notification postcard
- Invitation package
- Letter, FAQs, Memory Jogger, unique link to survey
- Reminder postcards and emails, as needed
Overall Response and Sample Size
Recruitment Phase |
Response |
Net Survey Invitations |
31,873 |
Wave 1 Completed Households (Entire Survey Completed by
All Adult Household Members) |
3356 |
Wave 1 Response Rate (As Share of Initial Contacts) |
10% |
Households Retained in Wave 2 |
2063 |
Wave 1 to Wave 2 Panel Retention Rate |
61% |
Overall Response Rate (as Share of Initial Contacts, by
Mode) |
6% |
Seattle: SR-520 Project Overview
External Factors
- Gasoline prices: increased 35% from Wave 1 ($3.06) to Wave 2
($4.13)
- Transit fares: base Metro bus fare up $0.25 per ride since Wave
1
- Employment levels: total nonfarm employees in region about 3%
higher in Wave 2
Sample Demographics
|
Seattle UPA Survey Respondent Panel (Weighted Data) |
American Community Survey, King County, 2008-2010 |
Male / Female |
45% / 55% |
50% / 50% |
Household Income: |
|
|
Under $50K |
13% |
37% |
$50K-$99.9K |
35% |
32% |
$100K-$150K |
28% |
17% |
Over $150K |
24% |
15% |
White / Black / Asian / Other or Two or More |
81% / 1% / 15% / 4% |
70% / 6% / 14% / 10% |
Hispanic or Latino |
3% |
9% |
Bachelor's degree or higher |
79% |
46% |
Equity Analysis
Equity Analysis Overview
- Caveat: SR-520 survey not designed specifically to assess equity
issues
- Sample sizes for lower income categories are small, even
before tolling
- Approach included assessing 3 types of equity issues
Income Groupings: Based on Household Size
Income Group |
Poverty Level |
Year 2 Income Range |
Mean Year 2 Income |
Year 1 Trips |
Year 2 Trips |
Individuals |
Households |
Income Group 1 |
Below poverty level
- 3 times poverty level |
$0 - $99,999 |
$37,399 |
2,183 |
1,750 |
302 |
174 |
Income Group 2 |
3 - 5 times poverty level |
$35,000 - $149,999 |
$68,666 |
4,067 |
3,520 |
547 |
311 |
Income Group 3 |
5-10 times poverty level |
$50,000 - $250,000 + |
$117,037 |
11,959 |
10,025 |
1548 |
901 |
Income Group 4 |
More than 10 times poverty level |
$100,000 - $250,000 + |
$197,188 |
5,230 |
4,427 |
691 |
400 |
All Respondents |
|
|
$118,806 |
27,217 |
23,055 |
3585 |
2058 |
Change in Individual Trips
- Decline in trips across the board - but greater declines within
the lowest income group, particularly for cross-lake trips
Income Group |
All Trips Individual Wave 1 |
All Trips Individual Wave 2 |
Percent Change |
Cross-lake Individual Wave 1 |
Cross-lake Individual Wave 2 |
Percent Change |
Income Group 1 (~$37K) |
7.23 |
5.79 |
-20% |
1.70 |
1.22 |
-28% |
Income Group 2 (~$70K) |
7.44 |
6.44 |
-13% |
1.82 |
1.49 |
-18% |
Income Group 3 (~$120K) |
7.73 |
6.48 |
-16% |
2.05 |
1.69 |
-18% |
Income Group 4 (~$200K) |
7.57 |
6.41 |
-15% |
2.27 |
1.83 |
-19% |
All Respondents |
7.60 |
6.43 |
-15% |
2.02 |
1.63 |
-19% |
Change in Reported Cross-Lake Trips, By Trip Purpose
- Lowest income group making significantly fewer discretionary
trips, as well as fewer work/school/child care trips
Income Group |
Home |
Work /
School /
Child Care |
Discretionary |
Other |
Total |
Income Group 1(~37K) |
-9% |
-34% |
-51% |
-27% |
-28% |
Income Group 2 (~70K), |
-16% |
-18% |
-27% |
-17% |
-18% |
Income Group 3 (~120K) |
-13% |
-19% |
-19% |
-30% |
-18% |
Income Group 4 (~200K) |
-19% |
-18% |
-24% |
-16% |
-19% |
All Respondents |
-15% |
-20% |
-25% |
-24% |
-19% |
Changes in Cross-Lake Mode Share
- Increase in transit mode share greatest among middle income
groups
Income Group |
Driving |
Vanpool |
Transit |
Walking/ Biking |
Other |
Income Group 1 (~$37K) |
Wave 1 |
81% |
1% |
18% |
1% |
0% |
Wave 2 |
78% |
0% |
22% |
0% |
0% |
Income Group 2 (~$70K), |
Wave 1 |
77% |
1% |
20% |
1% |
1% |
Wave 2 |
69% |
1% |
27% |
2% |
0% |
Income Group 3 (~$120K), |
Wave 1 |
80% |
2% |
14% |
1% |
0% |
Wave 2 |
75% |
2% |
21% |
1% |
1% |
Income Group 4 (~$200K) |
Wave 1 |
83% |
2% |
14% |
1% |
0% |
Wave 2 |
80% |
3% |
15% |
1% |
2% |
Attitudes on the Equity of Tolling
"Tolls are unfair to those with limited incomes"
Table data used to generate bar chart:
Income Group |
Strongly Disagree |
Disagree |
Disagree Somewhat |
Neutral |
Agree Somewhat |
Agree |
Strongly Agree |
N/A |
Income Group 1 (~$37K) |
Wave 1 |
>5% |
8% |
>5% |
13% |
12% |
22% |
37% |
>5% |
Wave 2 |
>5% |
|
7% |
16% |
24% |
17% |
26% |
>5% |
Income Group 2 (~$70K), |
Wave 1 |
>5% |
7% |
6% |
12% |
20% |
20% |
29% |
>5% |
Wave 2 |
>5% |
5% |
8% |
16% |
18% |
20% |
25% |
5% |
Income Group 3 (~$120K), |
Wave 1 |
>5% |
11% |
8% |
15% |
18% |
20% |
22% |
>5% |
Wave 2 |
>5% |
11% |
8% |
18% |
22% |
17% |
19% |
>5% |
Income Group 4 (~$200K) |
Wave 1 |
7% |
11% |
9% |
18% |
22% |
15% |
16% |
>5% |
Wave 2 |
6% |
13% |
11% |
17% |
19% |
18% |
15% |
>5% |
What do Respondents Say?
Equity concerns were much less common in Wave 2 comments compared
to Wave 1 comments, but were still mentioned:
- "There should be an option for discounted tolling for
low-income individuals who need to commute across the bridge."
- "My family cannot afford the $35.00 a week it would
cost me to take the most efficient route to work."
- "As much as I enjoy an empty bridge it doesn't feel
right to charge a fee to use a precious public resource. What's
next, a fee to use the library? [...] I see folks in Medina, Clyde
Hill, Hunts Point, etc. all loving this. They couldn't have dreamed
up a scheme this personally beneficial."
- "I am an elementary teacher who lives in Seattle, but
works in Medina. I get on from I-5 and then take the first Bellevue
exit. I rush as fast as I can (speeding like many others) to make
it over before 7am each day to avoid the extra dollar. It is extremely
expensive and luckily I am moving next year so I will avoid this
added cost in my commute."
Transponder Ownership
Toll Payments by Income Level
- Higher income households paying more in tolls
Table data used to create Tolls Paid chart:
Average Reported Tolls Paid During 2-Day Diary Period |
Income Group |
Amount Spent (2-day average) |
Under 50K |
$0.66 |
$50K-74.9K |
$1.12 |
$75K-99.9K |
$1.13 |
$100K-149.9K |
$1.81 |
$150K-199.9K |
$1.65 |
$200K-249.9K |
$3.35 |
$250K+ |
$2.49 |
Geographic Equity
Trip Attributes by Route |
Pre-Tolling |
Post-Tolling |
Change |
Driving Trips on SR 520: |
( N=1,840) |
( N= 1,032) |
|
- Satisfaction with Travel Time
|
3.41 |
5.17 |
+1.76 * |
- Satisfaction with Travel Speed
|
3.35 |
5.16 |
+1.81 * |
- Satisfaction with Predictability
|
3.47 |
5.13 |
+1.66 * |
Driving Trips on I-90: |
( N=1,306) |
(N=1,199) |
|
- Satisfaction with Travel Time
|
3.98 |
3.87 |
-0.11 * |
- Satisfaction with Travel Speed
|
3.93 |
3.81 |
-0.12 * |
- Satisfaction with Predictability
|
4.03 |
3.68 |
-0.35 * |
Driving Trips on SR 522: |
(N= 104) |
(N= 169) |
|
- Satisfaction with Travel Time
|
3.34 |
3.66 |
+0.32 * |
- Satisfaction with Travel Speed
|
3.39 |
3.64 |
+0.25 * |
- Satisfaction with Predictability
|
3.91 |
3.97 |
+0.06 |
Modal Equity:Transit User Satisfaction
Table data used to generate Passenger Satisfaction chart:
Transit Satisfaction |
Very Dissatisfied |
Dissatisfied |
Somewhat Dissatisfied |
Neutral |
Somewhat Satisfied |
Satisfied |
Very Satisfied |
Travel Time |
Wave 1 |
5% |
6% |
9% |
9% |
16% |
37% |
18% |
Wave 2 |
>5% |
>5% |
9% |
13% |
14% |
38% |
20% |
Wait Time |
Wave 1 |
>5% |
5% |
8% |
13% |
17% |
38% |
17% |
Wave 2 |
>5% |
>5% |
8% |
10% |
16% |
43% |
16% |
Reliability |
Wave 1 |
>5% |
>5% |
8% |
8% |
18% |
39% |
21% |
Wave 2 |
>5% |
>5% |
8% |
10% |
17% |
42% |
18% |
Seat Availability |
Wave 1 |
>5% |
>5% |
9% |
7% |
12% |
42% |
23% |
Wave 2 |
5% |
7% |
10% |
7% |
13% |
38% |
19% |
Modal Equity: Driver Satisfaction
Table data used to generate Driver Satisfaction chart:
Driver Satisfaction |
Very Dissatisfied |
Dissatisfied |
Somewhat Dissatisfied |
Neutral |
Somewhat Satisfied |
Satisfied |
Very Satisfied |
Travel Time |
Wave 1 |
9% |
13% |
14% |
14% |
13% |
25% |
11% |
Wave 2 |
>5% |
7% |
12% |
14% |
14% |
33% |
17% |
Congestion |
Wave 1 |
10% |
14% |
14% |
13% |
13% |
26% |
11% |
Wave 2 |
5% |
7% |
12% |
12% |
14% |
34% |
16% |
Predictability |
Wave 1 |
10% |
13% |
12% |
16% |
14% |
25% |
10% |
Wave 2 |
6% |
8% |
10% |
13% |
14% |
34% |
15% |
Modal Equity: Evidence from Atlanta
- HOV-2 lane converted to Express Lanes (HOV3+)
- Must own Peach pass to use Express Lanes
- Modal Equity Issue: what happens to 2-person carpools that are
no longer able to use Express Lanes for free?
- Profile of I-85 Trips among wave 1 HOV-2 users
I-85 Lane Type |
Wave 1 |
Wave 2 |
HOV/Express Lanes |
64% |
19% |
General Purpose Lane Trips |
36% |
81% |
1-person |
(81%) |
(43%) |
2-person |
(17%) |
(52%) |
3+ person |
(2%) |
(5%) |
Number of Trips |
422 |
280 |
Evidence from Atlanta (2)
I-85 Trip Satisfaction among HOV-2 Users
Trip Attributes |
Very Dissatisfied |
Dissatisfied |
Somewhat Dissatisfied |
Neutral |
Somewhat Satisfied |
Satisfied |
Very Satisfied |
Travel Time |
Wave 1 |
10% |
11% |
18% |
10% |
14% |
28% |
9% |
Wave 2 |
18% |
21% |
9% |
9% |
16% |
23% |
5% |
Travel Speed |
Wave 1 |
9% |
13% |
16% |
7% |
17% |
28% |
10% |
Wave 2 |
22% |
19% |
8% |
9% |
13% |
23% |
6% |
Predictability |
Wave 1 |
15% |
9% |
12% |
15% |
15% |
26% |
8% |
Wave 2 |
19% |
18% |
8% |
9% |
15% |
25% |
6% |
Conclusions
- Survey data show evidence of income equity impacts
- Key difference is in foregone trips: lower income households
reduced their cross-lake travel disproportionately
- Transit mode share increased, suggesting that it is an alternative
for some, but this was somewhat less true for the lowest income
group
- Equity concerns abated somewhat in Wave 2, but a majority of
respondents still believe it to be unfair, especially among the
lowest-income group
- Geographic impacts were also felt
- I-90 users expressed greater dissatisfaction with trip quality
- Modal impacts less clear (in Seattle)
- Small increases in dissatisfaction among transit users (seat
availability)
- HOV-2 users in Atlanta expressed trip dissatisfaction after
HOT-3 conversion
Using Surveys to Measure Equity Impacts
- Surveys are one tool in your toolbox
- Understand the local travel context, characteristics of the
road pricing strategy, and potential impacts on EJ populations
- Type of road pricing strategy
- Use of alternate routes? Modes?
- Toll collection method and toll structure
Using Surveys (2)
- Be deliberate in your study design
- Are resources available to conduct a panel survey (before-after)
- ideally with two post deployment surveys (i.e. to monitor
impacts/changes over time)
- Will your method result in a sufficient sample size of EJ
populations - or do you need to oversample?
- Does your questionnaire include the right questions?
- Household income
- Race/Ethnicity
- Zip code
- Use of alternate routes/modes?
- Other?
- Do you need to administer the survey in other languages?
- Do you need to consider multiple methods (e.g., supplement online
surveys with in person intercept surveys for under-represented populations)?
Thank You!
Margaret Petrella, Social Scientist
Volpe National Transportation Systems Center
margaret.petrella@dot.gov
Sean Peirce, Economist
Volpe National Transportation Systems
Center
sean.peirce@dot.gov