35368_Attc D_Concept of Operations.pdf

FINAL REPORT

Oregon Toll Program Concept of Operations

June 28, 2022

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Concept of

B

Prepared for Prepared by

Updated by

November 7, 2022

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1 TABLE OF CONTENTS

1 TABLE OF CONTENTS

1.1 Terms Used In This Document

1.2 Acronyms and Abbreviations

2 Executive Summary

2.1 The Oregon Toll Program Implementation

2.2 Authority

2.3 Intended Audience

2.4 Related Projects, Programs, and Facilities

3 Project Description and Toll Need

3.1 Oregon Toll Program Background

3.2 Implementation Phases

3.3 Program Goals and Objectives

3.4 Procurement Approach

4 Stakeholder Roles

4.1 Oregon Transportation Commission

4.2 Oregon Department of Transportation

4.3 Oregon Statewide Enterprise Services

4.4 Federal Highway Administration

4.5 Customers

4.6 Roadside Toll Systems Integrator

4.7 Commercial Back-Office Toll Systems Integrator

4.8 Customer Service Center Contractor

4.9 Banks and Financial Institutions

4.10 Other Toll Agencies

5 User-Oriented Operational Description

5.1 Roadside Toll System/Vehicle Detection

5.2 Commercial Back-Office System

5.3 Customer Accounts

5.4 Payments

6 Interoperability

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6.1 Interoperable Accounts

6.2 Account Processing Order of Precedence

6.3 Interoperable Data Exchange Process

6.4 Interoperable Agreements

6.5 Reciprocal Toll Enforcement

7 Proposed System Architecture

7.1 Roadside TOLL System

7.2 Commercial BACK-OFFICE System

7.3 Customer Service Center (CSC)

7.4 Technical Considerations

8 Structural and Civil Works

8.1 Toll-Zone Site

8.2 Networking and Communications

9 Referenced Documents

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List of Tables

Table 1 Example Vehicle Classification Schedule Table 2 Example Escalation Process Table 3 Toll Zone Separation of Responsibilities

List Of Figures

Figure 1 Oregon Toll Program Area of Operation Figure 2 System Architecture Figure 3 Oregon Toll Program Area of Operation Figure 4 System Interoperability Architecture Figure 5 Example Reciprocal Toll Enforcement Process Figure 6 System Interoperability Architecture Figure 7 Sticker-Mounted Transponder Figure 8 Oregon License Plates Figure 9 Roadside Equipment Figure 10 High-Speed Cameras Figure 11 TITAN-brand Toll Reader from STAR Systems Figure 12 Potential Transaction Message Data Figure 13 Commercial Back-Office System Overview Figure 14 Massachusetts Turnpike All-Electronic Toll Zone and Gantry Figure 15 Example Toll-Zone Plan View

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List Of Revisions

Revision Date Reason for the Change and Short Summary of the Revisions Made Version Number

6/03/2020 Interim draft submission 1.0

7/02/2020 Revised draft submission after initial ODOT review 1.1

8/03/2020 Final client review comments incorporated 1.2

8/24/2020 Final internal review for consistency with OTC Presentation and Business Rules 1.3

10/08/2020 After the document was submitted to address the I-205 Toll Project, this revision is prepared to encompass the entire I-5/I-205 Portland Metro region.

1.4

5/22/2022 CDM Smith team modification 2.0

6/2/2022 ODOT Toll Program Director review with comments 2.1

6/27/2022 CDM Smith team update re: ODOT comments 2.2

8/12/2022 ODOT updated 2.3

10/4/2022 CDM Smith Team Update 2.4

10/10/2022 ODOT Review 2.5

11/7/2022 CDM Smith Team Update based on ODOT feedback 2.6

11/14/2022 Final technical editor review 3.0

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1.1 TERMS USED IN THIS DOCUMENT

Term Definition

Account The record of toll transactions by a specific vehicle or group of vehicles.

Accounts are pre-established with owner identification and means of account payment. Most toll accounts are prepaid accounts, typically associated with a pre-authorized credit or debit card or an associated connected bank account checking or savings. Most toll accounts have a transponder mounted on the vehicle to associate it with the account. In addition, “Pay-by-Plate” account options will be available for drivers not using transponders. Accounts that are not valid are those created by vehicles without any prior arrangement for payment.

These invalid toll account holders are invoiced; if the invoice is not paid, additional fees and penalties and other escalation remedies such as vehicle registration holds and collection actions may apply.

All Electronic Tolls The system of toll zones and systems that only collect tolls by detection of electronic toll collection (ETC) toll transponders or vehicle license plate images. All Electronic Toll systems do not accept cash payments in the lane, so there are no tollbooths.

Automated Clearing House (ACH) A network to coordinate electronic payments and money transfers without paper checks or cash, and outside the credit card network, thus avoiding credit card clearinghouse fees.

Automatic License Plate Recognition

(ALPR)

The automated reading of license plates to determine jurisdiction and license plate number, based on character recognition and plate image recognition.

Auto-Replenishment The pre-authorization of a credit card or other source of funds to replenish a prepaid toll account, which is used when the toll account balance drops below a defined minimum balance threshold.

Back-Office The business part or “back half” of the Oregon Toll System. It includes the Back-Office System (BOS), which incorporates customer relationship management (CRM) software with other applications, data repositories, and IT infrastructure, as well as interfaces with other toll agencies, service providers, financial entities, and other governmental entities. The Back-Office also includes the operating Customer Service Center and other portals through which toll customer services and account management support is provided. The Back-Office is sometimes referred to as the “Commercial Back-Office” (CBOS), to distinguish it from the Operational Back Office (OBO), which is an element of the Roadside Toll System.

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Business Rules Rules governing the use and operation of the toll system, particularly with respect to toll account structure and operations, as well as other aspects of toll system operations.

ConOps The Concept of Operations (ConOps) describes the proposed function and operations of toll in the Oregon Toll Program. The ConOps describes how the Oregon Toll System would operate, from the perspective of the users, owner/operator, and other involved stakeholders. ConOps documents are most often used in development as the first design step in a systems-engineering process.

Customer Any vehicle operator driving on a toll facility.

Customer Relationship Management

(CRM)

The systems and services in the Back-Office’s Customer Service Center that enables customer service via any channel or method as desired by the owner. The term CRM often implies the wide range of commercial software packages that provide customer service and customer account management functions, such as those provided by Microsoft, Salesforce, SAP, and many other firms. CRM software may also be custom software as part of a toll system package.

Customer Service Center (CSC) Part of the Back-Office. The systems and services to support one or all the following: customer relationship management software, call center, storefront, website, phone application, and mail house and to provide account management, transponder fulfillment, image review in some cases, and other operations services. Some elements or functions of the CSC may be provided by various companies or service providers.

Electronic Toll Collection (ETC) The collection of tolls based on the automatic identification of vehicles, currently achieved with the use of Radio Frequency Identification (RFID) electronic systems.

Enrolled vehicles Vehicles that have enrolled in other programs such as the OReGO or motor carrier weight/mile program. In the case of OReGO, registered owners may want to have tolls paid from their OReGO accounts. For the weight/mile program, the owner or operator may want to pay tolls when filing and paying the weight/mile tax. While this functionality is not contemplated to be a “go live” consideration, it is a desirable end state for Oregon.

Gantry The physical structure in the toll zone on which overhead electronic toll equipment is mounted.

Go-Live Day The first day of regular revenue collection operations. This is a critical project milestone.

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Home Agency and Away Agency The home agency is the agency that establishes and/or maintains the customer’s account and issues the transponders.

The away agency is all other agencies.

I-205 Toll Project The project to design, develop, furnish, install, test, and operate a fully functioning system that will collect tolls on I-205 between Stafford Road and Oregon Route 213.

Interoperability A cooperative arrangement between toll operators enabling toll transponders and toll accounts from one agency to be used on another agency’s toll facilities. Another extension of interoperability enables toll operators to extend use of their toll accounts and transponders for payment to other public and/or commercial entities such as transit and parking lot operators or roadside food and vehicle servicing vendors.

This may also include other account managers such as OReGO Road Usage Charge (RUC) program, Oregon Commerce Compliance Division (CCD) for weight/mile tax, and third parties.

Manual Replenishment Manual replenishments of accounts may be initiated by the customer in person, by phone, through mail, via the web, through a retailer location, or by mobile application if available.

Multiprotocol Electronic Toll Collection The use of electronic toll transponders or in-lane readers that can use more than one radio frequency technology protocol. There are three primary protocols in use in the United States today. Multiprotocol transponders can be issued by one agency but used across many agencies with any of the protocols supported by the transponder.

Multiprotocol readers can read transponders issued by their own agency as well as those issued in other parts of the country.

Operational Back-Office The system host and center of the Roadside Toll System, which manages the toll zones and performs other transaction pre-processing such as image review and verification, electronic toll and license plate validation, and transaction processing.

The hardware and software operated here is referred to as “OBO,” or simply “Toll Host.”

OmniAir An independent industry association promoting interoperability and providing certification services for connected vehicles, Intelligent Transportation System (ITS), and transportation payment systems, including electronic toll equipment.

Oregon Toll Program The new Oregon state tolling policy and implementation, which is operated through by the Oregon Toll System described in this document, and encompasses the policy, operations, and administration

Oregon Toll Program | Page x of tolling in Oregon. The Oregon Toll Program is initially intended to cover I-5 and I-205 but may in the future be extended to include other facilities. The Oregon Toll Program does not include the existing tolling programs on the White Salmon-Hood River Bridge and the Bridge of the Gods, but it will be interoperable with those programs.

Oregon Toll System The entirety of the Roadside Toll System and the Back-Office, incorporating all the primary systems and services required to provide toll collection for the State of Oregon.

Roadside Toll System The “front half” of the Oregon Toll System, which includes the Toll Zones (including all roadside toll system hardware) and the Operational Back-Office.

Systems Integrator A toll industry prime contractor or vendor responsible to design, develop, install, test, maintain, and operate part or all of toll system.

For the Oregon Toll Program, one Systems Integrator contract will provide the Roadside Toll System and another will provide the Commercial Back-Office System, including the customer service center.

These vendors will be references as such:

• Roadside Toll Systems Integrator (RTSI)

• Commercial Back-Office System Toll System Integrator (CBOS TSI)

Toll Host The center of the Roadside Toll System that controls the toll zones, receives toll transaction messages, and processes transactions.

Toll Zone The part of the Roadside Toll System deployed in the field. The location on the tolled highway where the toll gantry and field electronic toll collection equipment is located.

Transaction The data set provided in an electronic message that describes the vehicle, the toll to be charged to the account, the date-time-location of the toll event, and other information as necessary for proper system function. A point transaction identifies the vehicle and toll from a single toll zone. A trip transaction is derived from the association of many point transactions to describe an end-to-end trip on a roadway and set a single toll for the entire trip.

All transactions will have the same uniform data format, but content can vary. An ETC transaction will include a valid transponder number.

All transactions will have license plate information. A transaction without a transponder will be referred to as a license plate (LP) transaction.

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Transponder The in-vehicle electronic toll device that employs RFID technology to enable roadside toll system equipment to identify a vehicle by its transponder. Also, often referred to as a “tag,” “ETC tag,” “toll tag,” or sometimes a “pass.”

V2X Vehicle-to-everything communications allows connectivity in vehicles to report location data at a level that enables its travel through toll zones to be priced and added to the toll account for that vehicle or to other accounts, such as its RUC account. This functionality is being developed, and as Oregon looks to future-proof its system, an adaptable system is desirable. The specific protocol expected to implement V2X is C-V2X, cellular V2X communications.

Vehicle Classification The method to rank or describe the vehicle size, such that larger or heavier vehicles may be charged a higher toll than smaller or lighter vehicles.

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1.2 ACRONYMS AND ABBREVIATIONS

ACH Automated Clearing House

ALPR Automatic License Plate Recognition AM Account Manager

API Application Programming Interface

BOS Back-Office System

CBOS Commercial Back-Office System

CBOS TSI CBOS Toll System Integrator

CCTV Closed-Circuit Television

COAT Concept for Open Architecture Tolling CCD Commerce and Compliance Division of ODOT

ConOps Concept of Operations

CRM Customer Relationship Management

CSC Customer Service Center

CSR Customer Service Representative

CTOC California Toll Operators Committee

DMV (Oregon) Driver and Motor Vehicle Services

DOL (Washington State) Department of Licensing

ETC Electronic Toll Collection

FHWA Federal Highway Administration

HB 2017 House Bill 2017

I-205 Interstate 205

I-5 Interstate 5

IBR Interstate Bridge Replacement

IVR Interactive Voice Response

IT Information Technology

ITS Intelligent Transportation System

LIDAR Light Detection and Ranging

MOU Memorandum of Understanding

MP Mile Post NEPA National Environmental Policy Act NOCP Notice of Civil Penalty OBO Operational Back-Office ODOT Oregon Department of Transportation

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OR 213 Oregon Route 213 OReGO Branded Name of the State of Oregon Road Use Charge Program OTC Oregon Transportation Commission PCI Payment Card Industry PEL Planning and Environmental Linkages PII Personally Identifiable Information RFID Radio Frequency Identification RMPP Regional Mobility Pricing Project RTSI Roadside Toll System Integrator RTS Roadside Toll System RUC Road Usage Charge UPS Uninterruptible Power Supply V2X Vehicle to Anything VPPP Value Pricing Pilot Program WRTOs Western Region Toll Operators WSDOT Washington State Department of Transportation

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2 EXECUTIVE SUMMARY

2.1 THE OREGON TOLL PROGRAM IMPLEMENTATION

The Oregon Toll Program will incorporate multiple toll implementation projects throughout the state. The Oregon Toll Program will be implemented through the Oregon Toll System (OTS), which is described in this Concept of Operations (ConOps) document. This concept of operations focuses on the tolled facilities within Oregon for the first three project phases, although it is possible that in the future, the OTS could be expanded to include other projects. Note that the Oregon Toll Program does not include the existing tolling programs on the White Salmon-Hood River Bridge and the Bridge of the Gods, but it will be interoperable with those programs.

The first phase will include the initial group of projects shown on the map in Figure 1. These will be located on I-205 near the Abernethy and Tualatin River Bridges and will include two toll zones with additional ramp toll zones.

The second phase will be referred to as the Regional Mobility Pricing Project (RMPP). This phase will include Interstate 5 (I-5) and the remaining portion of I-205 within Oregon and the Portland area. It is estimated to include an additional 30+ toll zones.

The third phase will be referred to as the Interstate Bridge Replacement (IBR), which will replace the lift span bridge carrying I-5 over the Columbia River to Washington. Where the concepts contained in this document are not applicable to the IBR project, that is noted.

The concept develops the Oregon Toll System in two basic parts: (1) the Roadside Toll System (RTS), which would include all the toll technology in the field and (2) the Commercial Back-Office System (CBOS), which would include a customer service center to perform all toll account management

Figure 1 Oregon Toll Program Area of Operation

Oregon Toll Program | Page 15 functions. The I-205 Toll Project, as the first major toll project in Oregon, will establish policies and prerequisites for future tolls in the state and will develop a system that could be easily expanded to support tolls on other Oregon Department of Transportation (ODOT) roadways with little new centralized infrastructure. ODOT is interested in future-proofing its toll system so it can use other toll zone reporting options in the future, such as electronic logging devices used by commercial vehicles, embedded telematics native to newer vehicles, on-board diagnostic devices, digital license plates, and other technologies. This will not be a requirement when the toll system goes live, but will follow other ODOT transportation program paradigms, such as the OReGO Program, and will mature and adapt to new technologies in the same way.

Initially, the Oregon Toll System will rely solely on electronic toll collection (ETC) transponders and license plates to identify vehicles. Vehicles will have a toll account linked to the transponder and/or license plate of the vehicle. If a detected vehicle does not have a toll account, that vehicle’s registered owner-of-record will be billed for the toll. The Oregon Toll System will support many toll payment and customer service channels to ensure equity for all communities. Integration with already established toll authorities for payments, such as the Port of Hood River, the Bridge of the Gods, the Oregon Road User Charge (RUC) system, and out-of-state toll account programs such as Washington’s Good To Go! or the California FasTrak toll systems, is planned for future development.

The initial implemented toll transponder technology will be the standard used by all the western U.S.

region toll operators.

2.2 AUTHORITY

ODOT has statutory authority to implement toll projects under Oregon Revised Statute 383. The Oregon Constitution (Article IX, Section 3a) specifies that revenues collected from the use or operation of motor vehicles is spent on roadway projects, which could include construction or reconstruction of travel lanes, as well as bicycle and pedestrian facilities or transit improvements in or along the roadway. The following list provides an overview of the structure through which a toll program is being developed:

• Federal Highway Administration (FHWA), United States Department of Transportation, the Value Pricing Pilot Program, and other federal regulations, policies, or executive orders (Executive Order 13985 of January 20, 2021, “Advancing Racial Equity and Support for Underserved Communities Through the Federal Government”)

• Oregon’s Constitution (e.g., Article IX 3a); Governor Executive Orders (e.g., Order 20-04 Reduce Greenhouse Gas Emissions); legislative actions (e.g., House Bill 2017 [HB 2017]) and oversight (e.g., Joint Committee on Transportation); and state policies, plans, and regulations (e.g., Oregon Revised Statute Chapter 367 and 383, Statewide Transportation Strategy: A 2050 Vision for Greenhouse Gas Reduction)

• Oregon Transportation Commission (OTC) and ODOT regulations, plans, and policies (e.g., Strategic Action Plan, Oregon Transportation Plan, Oregon Highway Plan, Tolling and Congestion Pricing Research and Policy Support: Congestion Pricing White Paper, Blueprint

Oregon Toll Program | Page 16 for Urban Design, mobility measures, design standards, and modal plans for bicycles, pedestrians, freight, public transportation, transportation options, and safety)

• ODOT’s Urban Mobility Office and the Oregon Toll Program project administration (e.g., Comprehensive Congestion Management and Mobility Plan and National Environmental Policy Act (NEPA) documentation of toll projects (e.g., I-205 Toll Project, I-5/205 Regional Toll Project, Equity Framework, and Equity and Mobility Strategies)

• Regional transportation plans, policies, and regulations (e.g., Metropolitan Transportation Improvement Program, Regional Transportation Plan, Southwest Washington Regional Transportation Council’s Regional Transportation Plan)

• City and County-level (e.g., Portland Bureau of Transportation, Clackamas County [transit], Washington County [transit], Multnomah County, and Clark County), transit or transportation option providers (e.g., C-TRAN 2030, TriMet Unified Service Enhancement Plan, SMART Transit Master Plan, and Ride Connection), and mobility service provider transportation plans, policies, and regulations

With this structure in place, this ConOps describes the proposed function and operations of the I- 205 Toll Project (Tualatin and Abernethy Bridges). It also applies to the overall Oregon Toll Program in the Portland metropolitan area, and other areas in the state where tolling may occur. As a result, the system described in this ConOps is termed the “Oregon Toll System.”

The ConOps describes how the Oregon Toll System will operate, from the perspective of the users, owner/operator, and other involved stakeholders. The operational description leads to concept-level guidelines and recommendations for toll system design, including hardware and software design, data architecture, as well as identification of services required to maintain and operate the system and to provide customer service. This document also provides an initial look at potential business rules and minimum business rules requirements. The ConOps identifies potential strategies for the toll system to support environmental justice measures such as targeted discounts or favorable toll account terms and conditions, all of which would be designed to aid low-income individuals, and customers who prefer using cash.

The ConOps represents the first step in the systems engineering process, whereby the design of complex systems follows the operational requirements. Subsequent engineering and contract documents will build on the concepts presented herein as the requisite systems and services are procured, developed, and placed into operations. The ConOps tracks closely with the rapidly changing information technology (IT) and toll technology marketplace, which evolve primarily based on market demand and customer service requirements.

ODOT has been a leader in development of transportation funding with the development of OReGO, Oregon’s RUC program. This program has tested technical and regulatory structures that could enable the state to move away from reliance on fuel taxes. This is similar to its existing weight-mile tax program that applies to commercial vehicles that weigh in excess of 26,000 pounds. Now, ODOT and OTC have begun to develop the Oregon Toll Program focused on funding infrastructure improvements as well as managing congestion. This ConOps describes the OTS, the system that

Oregon Toll Program | Page 17 implements the Oregon Toll program, and helps identify administrative functions needed to manage the toll systems and services.

2.3 INTENDED AUDIENCE

This ConOps is primarily intended for stakeholders who may potentially provide services or own and operate systems and equipment that will implement the proposed toll system concept. This audience includes:

a. ODOT, particularly the following:

i. Director’s Office

ii. Driver and Motor Vehicle Services Division

iii. Commerce and Compliance Division

iv. Office of Innovative Funding

v. Headquarters and Office of Maintenance and Operations

vi. Region 1 – Portland metropolitan area

vii. Procurement Office

viii. Urban Mobility Office

ix. Data Solutions Office

x. Oversight and steering committees within ODOT

b. Industry consultants

c. Academic institutions

d. Engineering firms and consultants

e. BreezeBy Toll Program

f. Law enforcement

g. Metropolitan planning organizations

h. Other jurisdictions, including other state departments of transportation

i. Out-of-state toll operators, such as:

i. Washington State DOT

ii. California Toll Operators Committee (CTOC)

j. Policymakers including state and regional elected officials

k. Professional organizations

l. Toll systems integrators and service providers (back-office and/or roadside)

m. Other government entities

i. OTC

ii. Oregon Department of Justice

iii. Oregon Department of Administrative Services

iv. FHWA

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Although not a direct audience, the needs of potential toll facility users and interested parties should also be considered and reflected in this document. This audience includes:

a. Car rental agencies

b. Commercial vehicle operators and associations

c. Consumer organizations, such as the American Automobile Association (AAA)

d. Media

e. Private companies and business owners

f. The public

2.4 RELATED PROJECTS, PROGRAMS, AND FACILITIES

2.4.1 Future Project Supported by Tolling

ODOT and the OTC have identified several initial highway improvement projects to be funded by tolls, the first of which is planned to be the I-205 Improvements Project. This would add a third lane in both directions on part of I-205 and include seismic upgrades to several I-205 bridges.

Tolls may also be considered for the remainder of I-205, from its southern terminus with I-5, through the I-205 study area, and up to the Columbia River area to the north. In addition, tolls are also under consideration for I-5 for from Multnomah Boulevard to North Going Street and may include other portions of I-5 between the Boone Bridge over the Willamette River at Mile Post (MP) 282 to the south and the I- 5 Interstate Bridge Crossing project between Oregon and Washington to the north.

The IBR project may use the same back-office system for toll collection, subject to negotiations with the State of Washington.

2.4.2 Existing Oregon Tolls

There are two existing toll facilities in Oregon: the White Salmon-Hood River Bridge and the Bridge of the Gods, both over the Columbia River. These are operated by the BreezeBy program, are funded independently of ODOT, and will be treated as partner toll agencies.

2.4.3 Road Usage Charge Program

ODOT has also been administering a RUC program called OReGO, which charges vehicle owners based on number of miles traveled in Oregon. Motor fuel taxes have become less sustainable over time as vehicle fuel efficiency improves and as vehicles being sold increasingly become electric-powered, with little or no gas consumption at all. A RUC is the funding solution that addressed the dwindling fuel tax revenue. This new funding model decreases fossil fuel use with a modern, technology-based solution that combats climate change while assessing drivers fairly for their road use.

The ODOT Office of Innovative Funding has been a leader in development and implementation of the OReGO program. The OReGO program allows for technology and service innovations and

Oregon Toll Program | Page 19 flexibility in service provider options. The Oregon Toll System will work with the OReGO program and its account managers as an interoperable partner agency. This is because there are similarities between the OReGO program and tolling: data collection, transaction processing, and account management that includes setting up accounts for enrolled vehicles, performing order fulfillment, and billing.

2.4.4 Open Architecture for Transportation Services

ODOT had launched an initiative to complement OReGO and other existing and future transportation services using an open architecture for transportation services. Open architecture enhances interoperability opportunities with other jurisdictions and the private sector. It should provide a platform for a variety of technological solutions and payment options for transportation system users. The aim is to provide each traveler a range of choices to seamlessly pay all charges related to road usage, tolling, or other transportation-related expenses (i.e., transit fares), creating a market environment that encourages competition and build systems that can adapt as technology advances.

This allows for flexibility in technological approach and business rules. Adherence to the open architecture concept positions the agency to anticipate future needs and market developments. This ConOps applies those principles with a presentation of a state-of-the-practice toll system that will have flexibility to replace technologies, vendors, and services as agency needs and technology innovations continue to evolve. Figure 2 shows the system architecture for a range of transportation programs and services including tolls, RUC, transit, and parking. The open architecture model supports each service involved in providing and collecting for transportation services, including:

a. Data collection

b. Transaction processing

c. Account management

d. Sending data and funds to the administration or the governing agency

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Open architecture objectives:

a. Enable transportation system users to manage multiple transportation services and payments for those services through a single account.

b. Deploy systems that support and emphasize user choice.

c. Enable private sector vendors to provide their own value-added services and manage the customer experience for their users.

d. Deploy systems where each component can be independently operated and vendors for those components can be individually managed, thus reducing reliance on a single vendor.

e. Deploy systems that allow multiple vendors to provide services for a single system component.

f. Provide and support a streamlined process for vendors to enter and exit the mobility market.

g. Develop a system with independent components, as determined by their business functions and requirements, that communicate through defined interfaces using common standards.

h. Provide a system where any given component can be independently replaced without affecting other components.

i. Deploy a system that supports jurisdiction-specific requirements on any given component.

Figure 2 System Architecture

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3 PROJECT DESCRIPTION AND TOLL NEED

3.1 OREGON TOLL PROGRAM BACKGROUND

In response to increasing traffic congestion and the needs of aging infrastructure, the Oregon legislature passed HB 2017, directing the OTC to establish a Traffic Congestion Relief Program. This program uses variable toll pricing based on time of day along with targeted infrastructure improvements to manage freeway demand and to provide funding for these improvements on I-5 and I-205 in the Portland metropolitan area. HB 2017 also established a Congestion Relief Fund as the repository for all toll revenues to ensure that highway toll revenues remain dedicated to fund congestion relief projects.

3.2 IMPLEMENTATION PHASES

As previously indicated, ODOT is currently developing three toll project phases: 1) the I- 205 Toll Project, 2) the RMPP, and 3) the IBR project, in partnership with the Washington State Department of Transportation (WSDOT) to replace and improve the I-5 bridge over the Columbia River.

Both the I-205 Toll Project and the IBR are currently in the NEPA process; the RMPP will begin the NEPA process later in 2022. All three toll projects (Figure 3) will apply variable rate tolls based on time of day for congestion management.

3.2.1 I-205 Toll Project

The I-205 Toll Project will be the first of the Oregon Toll Program projects to go into operation and will include the development of the Oregon Toll System. The Oregon Toll System as delivered for the I-205 Toll Project will form the foundation for the entire statewide system.

The I-205 Toll Project will toll all vehicles in all lanes of I-205, in five toll zones, at three primary locations between MP 4 and MP 9. Tolls will be used to pay for improvements and manage congestion pricing by incorporating variable time-of-day pricing. Tolls will be higher during peak periods than during off-peak periods and would be the

Figure 3 Oregon Toll Program Area of Operation

Oregon Toll Program | Page 22 lowest, or possibly free, during overnight periods. Larger vehicles may have the same or higher toll rates than smaller vehicles because of the increased road attrition. All vehicle owners or operators will be required to pay tolls, except exempt public transit vehicles or others as determined by the OTC. The OTC will also have the authority to approve discounts for certain demographics or other attributes in the future.

Currently, as planned the I-205 Toll Project will toll the reconstructed Abernethy and Tualatin River Bridges. The NEPA analysis considers two alternatives: the Build Alternative (tolling) and the No Build Alternative. The environmental assessment information was made available for public review and comment in summer 2022.

3.2.2 Regional Mobility Pricing Project

The RMPP plan is to toll all lanes on 55 route miles of interstate highways, from the I-5 Boone Bridge in Wilsonville north to the Columbia River on both I-5 and I-205. Toll rates will vary based on time of day, vehicle class, trip length, and method of payment. All segments of the two routes will be tolled with no free movements but with possible accommodations to address equity, tolling impact concerns, and other issues identified and approved by the OTC.

The RMPP is presently in a pre-NEPA U.S. Department of Transportation Planning and Environmental Linkages (PEL)11 phase through fall 2022. When the NEPA process begins, ODOT will apply for tolling authority under the Value Pricing Pilot Program or under the recently created Congestion Relief Program.

3.2.3 Interstate Bridge Replacement Program

The interstate bridge is a critical connection on I-5 over the Columbia River between Oregon and Washington. Replacement of the aging twin through-truss lift-span bridges with a modern, seismically resilient structure is a high priority for Oregon and Washington. The IBR Program is currently in the planning and development phase and anticipates implementing tolls on the bridge to help pay for the replacement.

3.3 PROGRAM GOALS AND OBJECTIVES

3.3.1 System Functionality

The Oregon Toll System business rules and requirements will govern the use and operation of the system and are based upon the operational concepts described in this ConOps. Business rules are used to inform the development of the requirements for the toll system and the standard operating procedures for toll operators. The business rules and requirements developed for the Oregon Toll System will be organized in sections reflecting operating and functional needs for the Systems

1 PEL represents a collaborative and integrated approach to transportation decision-making that 1) considers environmental, community, and economic goals early in the transportation planning process and 2) uses the information, analysis, and products developed during planning to inform the environmental review process.

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Integrators (e.g., RTS versus CBOS). Business rules and requirements will include configurable settings in the systems to the greatest extent practical. The baseline business rules and requirements to be in effect on Go-Live Day will be defined by ODOT and may be refined during design meetings with ODOT and the system integration teams.

Business rules and requirements will reflect toll policy decisions adopted by ODOT and are subject to revision throughout the life of the toll program. The Oregon Toll System will need to be flexible in the application of business rules, such that those rules can be changed when needed to meet new policy decisions, new technologies, or market demands.

3.3.2 Customer Considerations

The three toll projects add tolls to previously untolled roadways, so the Oregon Toll System will be designed to offer clear and simple options to help drivers who are now “customers” to comply with toll payment requirements. These systems and services will be designed for drivers that regularly use the toll route, as well as for infrequent drivers unfamiliar with the roadway or the new requirement to pay tolls. ODOT will provide clear signage and identification of where tolls are active, how much the tolls are, and how to pay them.

The Oregon Toll System and services will offer a range of payment options to accommodate a wide range of user groups. The system will provide multiple venues for customers to manage accounts and pay tolls, such as via the web, over the phone, on phone applications, and in person. It is anticipated that most account holders will live or work in the greater Portland metropolitan area, including southwest Washington, or elsewhere in Oregon. Infrequent customers can be expected from any of the western states, and it would not be unusual for the toll system on I-5 or I-205 to occasionally experience license plates from almost any jurisdiction in North America, particularly on commercial vehicles.

3.3.3 Interoperability with Other Transportation System Providers

ODOT’s goal is that the Oregon Toll System is interoperable with other agencies across the United States such that if a driver has a toll account with any jurisdiction, that account can be used to pay for tolls incurred on the Oregon Toll System. Similarly, a driver with an Oregon Toll System account will be able to travel on toll facilities in other states and use their Oregon toll accounts to pay for those tolls as described.

For the Oregon Toll System to be interoperable with tolling jurisdictions across the country:

a. Toll technology must be able to support transponder protocols used by other systems.

b. Toll technology must be able to read license plates from different jurisdictions.

c. Toll operators need business arrangements and memoranda of understanding (MOU).

d. Computer interfaces must exchange toll information.

Currently, there are many transponder protocols in use across the nation. Toll system technology can support all these protocols; however, only two or three protocols should be enabled at any time to achieve needed accuracy and efficiency. The optical recognition systems used to decipher license

Oregon Toll Program | Page 24 plates are capable of reading plates from all jurisdictions but can be optimized to read plates from a few select areas. Given these constraints, the Oregon Toll System will be designed to support interoperability with jurisdictions that are close to the state.

3.3.4 Interoperability with Other Transportation System Providers within Oregon

The toll system ETC technology will be interoperable with the BreezeBy system used by existing toll operators in Oregon including the Port of Hood River and Port of Cascade Locks. This will enable Oregon Toll System operators to enter into reciprocal interoperability agreements with these operators and accept BreezeBy toll accounts for payment of tolls on I-5 or I-205, or through an interoperability hub as described for the out-of-state agencies in subsection 3.3.5 below.

The Oregon Toll System will be designed to accept OReGO account managers as interoperable partners such that OReGO RUC customers can use their OReGO accounts to pay tolls. This may be accomplished in a variety of ways, including simply reading RUC-registered license plates on the Oregon Toll System and sending fully formed toll transactions to RUC account managers.

3.3.5 Interoperability with Tolling Agencies Beyond Oregon

The Oregon Toll System will also be designed to be interoperable beyond Oregon with the following:

• The Western Region Toll Operators (WRTOs), which include WSDOT’s Good To Go!, BreezeBy, and the CTOC FasTrak toll account programs

• California hub, consisting of all CTOC agencies

• National hub (under design), which will include all tolling agencies across the United States

Because all states are not ready for national interoperability, and the WRTOs and California hub are not currently deployed, Oregon Toll System will support interoperability with WSDOT’s Good To Go!

system, in addition to BreezeBy in the state of Oregon in the initial deployment.

3.3.6 Interoperability with Third-Party Account Managers

Finally, the Oregon Toll System will be interoperable with third-party account managers that offer customers options for opening accounts and may provide added services. These account managers may include commercial toll account managers that support truck traffic throughout the United States.

Figure 4 describes the integration between the Oregon Toll System and these interoperable partners.

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3.3.7 Future Mobility Interoperability Beyond Tolls

The Oregon Toll System will support future mobility options in addition to toll payments. To accomplish this the Oregon Toll System will use standardized application programming interfaces (APIs) such that any vendor or business partner will be able to interface with the toll system for payment of tolls or using toll accounts to support payment of additional transportation needs.

The Oregon Toll System technology will support broad interoperability with other transportation providers. However, the ultimate commercial offering of interoperable arrangements with other transportation providers will depend on mutually agreed-upon conceptual terms and conditions that are acceptable to all parties.

3.3.7.1 Parking

As price points for transponders and in-lane hardware have decreased, the use of ETC for parking at major locations such as airports, central urban locations, or sports venues has become increasingly popular. The Oregon Toll System may support the use of its transponders for parking with major parking providers in the future, such that as Oregon Toll System transponders are detected at entry

Figure 4 System Interoperability Architecture

Oregon Toll Program | Page 26 and exit of parking garages, the parking charges could be assigned directly to the Oregon Toll System account.

The Oregon Toll System may limit the use of ETC transponders for parking to certain account types with business rules determined by the OTC. This is because parking charges can far exceed typical toll charges in a short period of time. As an example, parking in downtown Portland or at Portland International Airport can be as much as $30 daily.

3.3.7.2 Transit

The Portland regional transit system, TriMet, already has a mobile wallet payment option. ODOT may work with TriMet to explore ways for the toll system to also be used for TriMet payments. One possibility to explore would be to use the Oregon Toll System account as another link in Apple Pay, Google Pay, or Samsung Pay, which would provide an automatic linking of the two systems.

3.4 PROCUREMENT APPROACH

ODOT will procure services to design, develop, implement, operate, and maintain the Oregon Toll System. This includes contracting services for the RTS, CBOS, and Customer Service Operations. The contracts will be structured to minimize involvement from ODOT. The procurement approach will be designed to secure these systems and services considering limited availability of ODOT staff and targets for specific milestones, such as the Go Live date.

3.4.1 Roadside Toll System

The RTS is an integrated systems and services project. The contract requirements will be developed as functional systems requirements with details that govern how the Roadside Toll Systems Integrator (RTSI) will conduct the design, development, delivery and installation, testing, and then maintenance and operations of the RTS. Technical requirements will control selection of design features, such as the interfaces with the CBOS and the associated data requirements.

The RTSI’s scope will include all elements of the RTS work required to provide a fully functioning system meeting all contract requirements.

3.4.2 Commercial Back-Office System

The CBOS is an integrated systems and services project. The contract requirements will be developed as functional systems requirements with details that govern how the CBOS TSI will conduct the design, development, delivery and installation, testing, and then maintenance and operations of the

CBOS.

Toll Back-Offices are composed of many parts provided by many types of systems and service providers. As ODOT moves towards procurement, some of the individual systems and services may be provided directly by ODOT or existing statewide contractors.

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3.4.3 Customer Service Operations

The customer service operators will conduct customer interactions and services representing themselves as agents of ODOT, not as employees of their company. The customer service operators will be responsible for provision of all Oregon Toll System customer services—except for any portions taken over directly by ODOT.

3.4.4 Maintenance and Operations

The contracts are likely to include details for maintenance services. For example, ODOT prefers for the RTSI to provide maintenance for all the roadside toll system equipment. ODOT is considering options to minimize state staff involvement to support equipment and systems. Additional information for maintenance roles and responsibilities will be provided in the request for proposals.

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4 STAKEHOLDER ROLES

This section describes the following primary roles of the stakeholders in the setup and operation of the Oregon Toll System.

4.1 OREGON TRANSPORTATION COMMISSION

The OTC is the Oregon toll authority and is responsible for setting toll rates and exemptions as well as approving toll program business rules.

4.2 OREGON DEPARTMENT OF TRANSPORTATION

ODOT is the responsible owner and operator of highway facilities and rights of way within Oregon, and owns and maintains all systems for traffic control, traffic data collection, and toll collection. Thus, ODOT will be responsible for managing all improvements associated with toll infrastructure, from environmental approval, right-of-way acquisition (if needed), preliminary and final design, through the construction phase and to acceptance.

During operations, ODOT will remain responsible for traffic control, including lane closures to support toll system maintenance and incident management. As discussed below in its own subsection, the Roadside Toll Systems Integrator (RTSI) will be responsible for maintenance of physical tolling equipment and will coordinate with ODOT on all needed lane closures and other ODOT activities needed for tolling equipment maintenance. ODOT will remain responsible for highway maintenance, including maintenance of the toll zone civil works, and will coordinate with the RTSI for such maintenance. ODOT will also remain responsible for maintaining its overall fiber communications network except for new network technology provided by the RTSI. Where fiber is owned by another entity with whom ODOT has a Service Level Agreement (SLA), ODOT will be responsible for updating SLAs to support tolling or providing alternative fiber.

4.2.1 Oregon Toll Program Administration

The Oregon Toll Program administration, led by the Oregon Toll Program director, is and will remain responsible for executing all duties with respect to management and governance over operations of the Oregon Toll System and services.

The administration will be responsible for design and development of the toll program, including procurement of engineering and construction of toll gantries, systems both for the roadside and the CBOS, and all ongoing services, maintenance, and operations.

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Duties of the administration will include, but are not limited to:

a. Toll system development

b. Development of requirements for the RTS and the CBOS

c. Development of a procurement and selection process

d. Development with policies and procedures

e. Management of the selection process

f. Negotiations on behalf of ODOT with the highest-ranked systems integrators (back-office and roadside)

g. Management of the systems design, development, and testing process

h. Selection and oversight of support services from toll, IT consulting, marketing and public relations firms, and other firms and services providers as needed

i. Operations

j. RTS operations and maintenance contract oversight

k. CBOS operations and maintenance contracts oversight

l. Traffic operations

m. Customer service operations oversight

n. Marketing and public relations

o. Vendor support operations oversight

p. Technology support (communications, web services, utilities, etc.)

q. Liaison with interoperable toll agencies

r. Operations audit of RTS

s. Finance

t. Controller

u. Data interoperability, integration, and MOUs

v. Accounts management

w. Financial audit

4.2.2 Road Usage Charge Program

The ODOT Office of Innovative Funding established and currently manages OReGO, Oregon’s RUC program, which has engaged several third-party account managers to operate RUC accounts as substitutes for the requirement to pay fuel…