With more states and municipalities turning to tolling and other pricing initiatives as a means to mitigate traffic while generating more revenue to that can holistically improve a region’s transportation network, the need for an innovative approach to toll policy development, planning, design and project delivery, coupled with a more robust approach to public outreach and community engagement has become paramount.

To that end, earlier this year, STV brought on Heather Wills as vice president and national tolling director. In this role, she is working with both state and national clients to drive the planning, delivery and growth of pricing initiatives. Wills has more than 25 years of experience developing and delivering large-scale programs and projects that solve multi-modal transportation challenges, including long-standing partnerships with the Federal Highway Administration and the Oregon Department of Transportation.

Later this month, Wills and others from STV’s team will be attending the International Bridge, Tunnel and Turnpike Association’s (IBTTA) Annual Meeting and Exhibition in Cleveland, OH. Wills is a recent graduate of IBTTA’s Leadership Academy executive development program and STV will be sponsoring the “Women in Tolling” panel on October 26.

In this interview, Wills discusses some of the current challenges being faced in the tolling industry ahead of IBTTA and ways she and the STV team are prioritizing coalition building and diversity to produce better outcomes for clients and the communities they serve.

1. What is the most significant trend driving investment in tolling infrastructure at the current moment? How does this trend mark an evolution in the industry over the past 15-20 years?

The biggest trend we’re seeing is the movement toward integrating more advanced technology into our tolling infrastructure. That entails transitioning from cash-based to all-electronic toll collection, as well as smart mobility solutions that tie-in to larger “Smart City” initiatives – i.e. data analytics and real-time traffic management systems. The advent of this technology reflects a more holistic approach to transportation infrastructure. Additionally, the way tolling authorities are leveraging it improves how they collect revenue and overall operational efficiency, while also aligning with climate reduction goals by facilitating smoother traffic flow and reducing vehicular emissions.

The integration of various tolling solutions such as congestion pricing, managed lanes, cordon pricing, road usage charges and mileage-based user fees represents a significant shift in how we approach transportation funding and congestion management. By merging these strategies, we can create a more cohesive and efficient system that not only generates revenue for infrastructure improvements but also incentivizes more sustainable travel behaviors. A unified approach encourages technological innovation and data sharing, paving the way for smarter transportation solutions that align with urban growth and environmental goals.

2. How important is coalition building in tolling? Who are the primary stakeholders we need at the table and in alignment to deliver these programs for communities?

Coalition building is crucial for launching a tolling or pricing project. Let’s face it: no one loves tolls. That’s why we need a powerful educational campaign rooted in goals and a clear shared vision. For that education campaign, we must effectively communicate the benefits, i.e.; what problem are we solving?  Or how will the revenue be used? Without a compelling message about what drivers would be paying for, developing a toll project is nearly impossible.

Key stakeholders include:

• Local residents: Engage community members who will be directly affected by tolling.
• Business owners: Connect with local businesses that may benefit from improved infrastructure or that could be negatively impacted by tolls.
• Community-based organizations (CBOs): CBOs have established relationships, are trusted by the community and can provide local insight. They can enhance outreach activities and are crucial for reaching underserved and underrepresented communities within a project area.
• Equity priority communities: Projects that prioritize equity are more likely to achieve long-term success, as they create transportation systems that are responsive to the needs of diverse populations, enhancing overall community resilience.
• Freight community: The freight community has unique operational needs and challenges. Their input helps design toll systems that prioritize minimizing disruptions to service while accommodating logistics requirements. Because freight transportation is so crucial to the economy, engaging with freight stakeholders ensures that tolls are set at levels that do not hinder economic activity or increase costs excessively.
• Government officials: These include local, regional, and state representatives who can influence the approval process.
• Transportation advocates: Collaborate with organizations focused on transportation and infrastructure.

3. Can you describe the larger concern of equity in tolling? What steps can be taken by consultants like STV to see that the implementation of tolling is fair and equitable?

Establishing equity in tolling is a significant challenge as it seeks to prevent disproportionate burdens on low-income and marginalized communities. Tolls and violation fees that are disproportionate to the toll can strain these households, limiting their access to essential services and job opportunities. Additionally, tolls may restrict mobility for low-income drivers, leading to increased traffic in vulnerable neighborhoods and raising concerns about gentrification. If toll revenues are not invested in underserved areas, existing inequities can worsen, further marginalizing affected communities. Ultimately, addressing these equity issues is essential for fostering a fair and effective transportation system that benefits everyone.

When partnering with STV, we affirm:

• Equity should be prioritized at the very beginning of a program—we don’t want to wait until later or it may be treated as an afterthought. To do that, we need to establish robust online and in-person engagement opportunities and actively reach out to communities rather than expecting them to come to us. This proactive approach allows you to meet people where they are and truly understand their needs and concerns.
• Relationships with CBOs should be leveraged to deepen our outreach and build trust within the community. For a past project I led in Oregon, the team successfully employed community engagement liaisons who were members of the community themselves. They organized informational meetings in various languages and at times that worked best for the community, ensuring accessibility and inclusivity. By providing both in-person and online opportunities, we created an environment where everyone felt welcome to participate and share their perspectives. This holistic approach to community engagement is essential for fostering genuine collaboration and creating equitable outcomes in any project.
• Toll solutions should remain flexible once infrastructure is operational is crucial for addressing the dynamic needs of diverse communities. As economic conditions, traffic patterns, and demographic shifts evolve, a rigid toll system can inadvertently burden low-income individuals or underserved groups. By incorporating adaptability into the design, we can be sure that tolling practices remain equitable and responsive, allowing for adjustments that promote accessibility and fairness. This flexibility enhances public trust and fosters a more sustainable transportation infrastructure, ultimately benefiting everyone by facilitating smoother commutes and reducing congestion.

4. How did you become interested in tolling? Why is it important to bring more women into the industry and support programs like IBTTA’s Women in Tolling Council?

Accidentally! I kicked off my career in 2005 supporting the Columbia River Crossing Project—now the Interstate Bridge Replacement—a massive multimodal endeavor between Oregon and Washington where tolling was a central funding strategy. I spearheaded the environmental analysis to assess tolling’s impact on communities. Fast forward to 2019, I was tapped to lead toll program development in Oregon. I forged strong connections with tolling agencies nationwide, soaking up invaluable insights from their experiences. After 5 1/2 years on the project, I got a wealth of lessons to share—especially about the power of coalition-building and clear messaging in these complex projects.

As for bringing more women into the industry, the tolling industry is male-dominated.  Having more diversity can lead to fresh ideas and innovation and this is not just women, but all underrepresented groups. Additionally, having more women involved helps us better understand the communities we serve. Supporting initiatives like IBTTA’s Women in Tolling Council leads to a more balanced workforce. This not only enhances our connection with stakeholders but also contributes to a stronger industry. Supporting women in tolling goes beyond equality; it’s about fostering collaboration and tapping into a broader range of talent. Ultimately, when women succeed, the entire industry benefits.