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WhyCongressShouldEnactaMileage-BasedUserFeeforHeavyTrucking
ROBERTD.ATKINSON|APRIL2024
Withthegradualshiftfrominternalcombustiontoelectricvehicles,itisonlyamatteroftimebeforethenationwillhavetoreplacegastaxeswithavehiclemilestraveledsystemtopayforroadmaintenance.Themostsensiblewaytostartwouldbewithheavytrucks.
KEYTAKEAWAYS
.CongresshassupportedvariousMileage-BasedUserFee(MBUF)pilotprograms,butprogressremainsslow.Tobreakoutofthisinertia,CongressshouldmandateanMBUFsystemforheavytrucksintheupcomingSurfaceTransportationReauthorization.
.Startingwithanationalsystemfortruckswouldbemuchmorestraightforwardthanitwouldbeforpassengercars.TrucksalreadyhaveGPS,sothecostofinstallingonboard“computers”tomeasuredistancesandtrackpaymentswouldberelativelyminor.
.AnMBUFsystemforheavytruckswouldpavethewayforautosandlight-dutytruckstobeincludednext.Italsowouldestablishanationalweight-distanceroadtaxtoensureheavytruckspaythefullcostsoftheroaddamagetheycause.
.AnMBUFsystemwouldmakeiteasiertoendthemarket-distortingsubsidiesprovidedtotrucking,increaserevenueforthehighwaytrustfund,andreducedamagetoroadsandbridges.
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CONTENTS
KeyTakeaways 1
Introduction 2
WhatIsanMBUFSystem? 2
WhyTrucks? 4
HowWouldaTruckMBUFSystemWork? 5
TruckingIndustryOpposition 6
Claim1:TruckingAlreadyPaysaLot 6
Claim2:IncreasedPricesforConsumers 6
Conclusion 7
Endnotes 8
INTRODUCTION
Withthealbeitgradualshifttoelectricvehicles(EVs),itisonlyamatteroftimebeforethe
nationwillhavetoadoptanewwaytopayforroadsbasedonavehiclemilestraveled(VMT)
system.Thetechnologyforsuchasystemisalreadyhereandcanbeimplementedtocompletelyprotectprivacy.
1
However,whileCongresshassupportedvariousMileage-BasedUserFee(MBUF)pilotprograms,progressremainsslow.Tobreakoutofthisinertia,intheupcomingSurfaceTransportation
Reauthorization,CongressshouldmandateanMBUFsystemforheavytrucks.Therearetwomainreasonsfordoingthis.First,itwouldpavethewayforanMBUFsystemforautosandlight-dutytrucks.Second,andmoreimportantly,itwouldenableanationalweight-distanceroadtaxtobeestablishedtoensurethatheavytruckspaythefullcostsfortheroaddamagetheycause,
somethingtheydonotappeartodonow.Doingsowouldmeananendtomarket-distorting
subsidiesprovidedtotrucking,increasedrevenueforthehighwaytrustfund,andlessdamagetoroadsandbridges.
WHATISANMBUFSYSTEM?
America’sroadsarepaidforthroughavarietyofmeans:fueltaxes,tiretaxes(fortrucks),vehicleregistrationfees,tolls,generalfundrevenues(includingsalestaxes),andothers.Inthelast
decade,anumberofgovernments,includingsomeforeignandU.S.stategovernments,havebegunexperimentingwithcollectingrevenuedirectlyfromdriversonthebasisoftheirtravel.
Therearemanytermsforthis,includingMBUFs,distance-baseduserfees(DBUFs),avehiclemilestraveledtax(VMTT),androadusagecharges(RUCs).Theideaispaymentsshouldbe
basedonactualtravel,includingtimesofdayandroadstraveledon.Anumberofstates,
includingCalifornia,Colorado,Delaware,Hawaii,Minnesota,Oregon,Pennsylvania,and
Washington,havelaunchedpilotRUCprograms,mostwithpartialfederalfunding,whilea
numberofotherstatesareconsideringsuchprograms.TheU.S.DepartmentofTransportation(DOT)hasfundedanumberofroundsofstateRUCpilotprograms.AmajorfactormotivatinginterestinanMBUFsystemistheconcernthatwiththeexpectedriseofmorefuel-efficient
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|APRIL2024PAGE
3
vehicles,especiallyEVs,governmentswillbeunabletocollectadequaterevenuestosupporttransportationinfrastructure.
Therearetwomainwaystocollectmileage-basedfees.Thefirstisbasedonasimpleannualodometerreading,withafeebasedonthenumberofmilesavehiclehasdriven.Thisis,
however,nottheoptimalwayofcollectingthefee,becausethecostsimposedonthe
transportationsystemdifferbytimeofday.Travelinglateatnightimposesnocongestion
comparedwithtravelingat8:30AMonanurbanfreeway.Andforheavytrucks,travelingonroadsnotdesignedtohandlesuchvehiclesimposessignificantcosts.ThisiswhytheNationalSurfaceTransportationInfrastructureCommissionrecommendedthatCongresssupportthe
transitiontoanationalMBUFsystembasedononboardunits(OBUs)thatincorporatea
connectiontoAvehicle’sonboarddiagnostic(OBD)port,cellularcommunications,andaGPSreceiver.
2
Everycarproducedsince1996comingequippedwithwhatisknownasanOBDII(second-generationOBD)portmakesthisapproachtechnicallyviable.Thesesystemsare
currentlyused,forexample,tosupportcertainautoinsuranceprogramsthatchargebyhow
customersdrive,whereina“dongle”isinsertedintotheOBDporttomeasuretravelbehavior.AndasmostnewvehiclesalreadycomeequippedwithaGPSchip(forexample,toinformavehicle’sonboardmappingdisplaysystem),thechargescanbebasedontheactualroadacarhastraveledon.
3
AmajorfactormotivatinginterestinanMBUFsystemistheconcernthatwiththeexpectedriseof
morefuel-efficientvehicles,especiallyEVs,governmentswillbeunabletoobtainadequaterevenuestosupporttransportationinfrastructure.
Suchasystemwouldworkasfollows.NewvehicleswouldcomeequippedwithanOBU,aGPS
receiver,andcellular-communicationscapability.Innewvehicles,theOBU(orthevehicle’smappingsystem)wouldcontainadatabasewithalltheroadsintheUnitedStatesand
informationonpricesforeachsegment,includingbytimeofdayandwhatentity(local,state,andfederalgovernmentorprivatetolloperator)wouldreceivethepayment.Whenjurisdictionschangeroadprices,regularupdateswouldbedownloadedtotheOBUs.TheOBUwould
calculatepaymentstoallthejurisdictionsbasedontheroadsegmentsavehicledroveonandthepriceofthesegmentatthetimeoftravel(e.g.,$1.30toMontgomeryCounty,Maryland;
$5.15tothestateofMaryland,and$6.47tothefederalgovernment).Attheendofeach
month,avehicle’sOBUwouldaggregatethevariousfeesandsendapaymenttotheappropriatelocal,state,orfederalagency—oraprivate-roadowner—byautomaticallychargingthevehicleowner’screditcardorbankaccount.Forindividualswithoutacreditcardorbankaccount,thetotalpaymentamountcouldbeaddedtotheirannualorbiennialvehicleregistrationfees.
Importantly,theonlypersonallyidentifiableinformationtheentitieswouldreceivewouldbe
payments—nottimeofdayorroadstraveled.Moreover,thedefaultsettingfortheOBUcouldbetoautomaticallydeletealltripdataaftermonthlypaymentsaremadeandreceived,orfollowingsomefixedperiodafterthatsotravelerscancheckanddisputeanychargestheybelievewere
madeinerror.Othercomplementarysystemscouldalsobeestablished—orevolveastechnologyevolves.Forexample,asystemwouldneedtobedevelopedtoenabledriverswhohaveneitherabankaccountnoracreditcardtoparticipateandpay.Inotherwords,despitethecommon
narrative,anMBUFwouldprotectprivacyandbemoreprivatethancurrentEZ-passtollsystems.
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WHYTRUCKS?
AkeybenefitofdeployingaGPS-basedMBUFsystemwouldbetheabilitytobetteralignthe
costsheavytrucksimposeonthetransportationsystemwiththefeestheypay.Economistsin
general,andtransportationeconomistsspecifically,agreethateconomicallocationefficiencyismaximizedwhenpricesreflectcostsimposed.Ifaneconomicactivityissubsidized—inthecaseofheavytrucks,bynotpayingthefullcoststheyimpose—theeconomywillbelessefficientandoveralloutputwillbeless.
Itisclearthatheavyvehiclesimposegreatercosts.Asoneacademicstudystates,“Asroadwearisverytightlycontrolledbyaxleload,itbecomesapparentthatlargervehiclessuchas[heavy
goodsvehicles]andbuseswillhaveamuchgreaterimpactthancars,relativetothevehicle
weight.”
4
Thisisinpartbecausethestudyreinforcedthefindingthatpassengercarsdoalmostnodamagetoroads.Indeed,onestudyreferstoageneralfindingthatthatafive-axle
tractor/semi-trailerhasapavementimpactequivalentto9,600passengercars.
5
However,morecarefulanalysisfindsthatthisisonlyonaverysmallshareoftheU.S.highwaysystem.Theratioonmostroadsisintherangeof300to1(1truckcausesasmuchdamageas300cars),but
evenatthislowernumberitisstilllarge.
Itwouldbeonethingiftheseheavydamagevehicleswerealsopayingtheirshareofthetotal
costs,butitappearstheydonot.A2000addendumtoaFederalHighwayAdministration
highwaycostallocationstudyfindsthat80,000-poundtrucksunderpayby20percent,and
90,000-poundtrucksunderpayby50percent,noting,“AnyfutureincreaseinFederalfueltaxeswithoutcorrespondingincreasesintaxesontheheaviesttruckswillfurtherexacerbatethe
underpaymentofFederaluserfeesbyheavytrucks.”
6
Statestudieshavefoundsimilarlevelsofunderpaymentbyfreighttrucks.A2015studyof
IndianaroadsbyPurdueUniversityfindsthatheavyvehiclesdonotpaytheirfairshare.
7
A2021studyfortheNorthCarolinaDOTfindsthat:
single-unittruckswithfourormoreaxles(FHWAclass7)andallmulti-unittrucksclasses(FHWAclasses8-13)underpayby37%–92%forhighwayinfrastructurecomparedtothedamagetheycause.Insummary,lightweightvehiclesare
currentlysubsidizingthecostresponsibilityofmosttrucksonNorthCarolina’shighwaysystem.
8
TheTexasLegislaturerecentlychargedTexasDOTandtheTexasTransportationInstituteto
determinewhetherheavytruckspaytheir“fairshare”(e.g.,paymentsequaltothecoststheyimpose).Andthestudyfinds,perhapstonoone’ssurprise,thattheydonot.Astheleadauthorofstudystated,“Thebigtakeawaysarethat,notsurprising,commercialtrucksandoversizedtruckshavemoredamagecostassociatedwiththemthanrevenues.Sothereisalossthere.
Thereisadeficit.”
9
Inotherwords,thestateislosingmoneyanddriversofpassengervehicles,includinglow-incomedrivers,aresubsidizingtruckingcompanies.
Finally,intheInfrastructureInvestmentandJobsAct(IIJA),CongresschargedtheU.S.DOTwithconductingacostallocationstudytoupdatethefederalnumbers.Unfortunately,theDefense
Department(DOD)appearstobemakingslowprogress,astheyareinthe“earlyplanning
stages.”ItiscriticalthatDODcompletethisstudyintimeforCongresstoincorporatetheresultsforthenextsurfacetransportationreauthorizationbill.
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HOWWOULDATRUCKMBUFSYSTEMWORK?
AsuccessfultruckMBUFsystemwouldbedesignedsuchthattrucksoveracertainsizeand
weightwouldberequiredtohaveanOBUthatwouldtellitselfwherethetruckis,thetimeofdayanddayofweek,andthesegmentofroadwaythetruckistravelingon,alongwithitsprice.In
addition,truckswouldberequiredtohavesensorstomeasureweightperaxle.Truckswouldpaybasedonanumberofdifferentfactors:thetruckaxleweight(heaviertruckswouldpaymore);
emissionspermile(“dirtier”truckswouldpaymore);typesofroads(truckswouldpaymoreto
travelonroadsnotdesignedforheavytrucks);andtotalmilesdriven.Theycouldalsobechargedaccordingtotheamountofcongestion,withhigherpricesfordrivingonroadsthatarenormallycongested(e.g.,metropolitanfreewaysorcitycentersduringrushhours).Thesystemcouldbe
setuptocollectandremitbothstateandfederaltaxes.Chargesshouldbesettoensurethatthechronicsubsidizationofheavytruckingiseliminatedandthattrucksassumetheirfull
responsibilities—butatthesametime,don’traisefeessothattrucksaresubsidizingpassengercardrivers.
ImplementingatruckMBUFnowisimportantwiththedevelopmentofeitherhydrogenor
battery-operatedheavy-dutytrucks.OnestudyoftheimpactsbyScottishuniversityresearchersfindsthat“therewillbesignificantandquantifiableadditionalcostsofroadmaintenanceduetotheincreasedweightofZEVs[zero-emissionvehicles]overICE[internalcombustionengine]
vehicles.ThiswillbemarkedlygreaterforBEVs[batteryelectricvehicles]thanforHFCEVs
[hydrogenfuelcellelectricvehicles].”
10
Theynotedthatthisonlyappliestoheavytrucksandnotcarsandlighttrucks.
11
TheresearchersalsofoundroaddamagefromBEVstobe31percent
higherthanfromICEsand6percenthigherthanfromHFCEVs.
Thebenefitsfromaheavy-truckMBUFwouldultimatelybeadecreaseinpavementdamage,
reducedairemissions,andlessroadcongestion.Inaddition,itwouldleadtoamoreefficientnationalfreighttransportationsystem,asshipperswouldpaythetruecostofshipping,notonebasedongovernmentsubsidies,andinturnchoosethemostefficientformoftransportationforeachshipment.
SuchatruckMBUFsystemissomethingbothconservativesandliberalsshouldsupport.
Conservativesshouldsupportitbecauseoftheirgeneralsupportforfreemarketstodetermine
economicoutcomes.Effectivelysubsidizingfreighttruckingbypayingforroadswithgeneralfundrevenuesandlettingtrucksnotpaytheirfullcostofthedamagestheyimposeisessentially
pickingwinnersandlosers.Itlowersthecostoftruckingandraisestherelativecostofrailand
shipping,distortingfreemarketforces.Themarket—buyersoftransportationservices—shouldbemakingthesedecisions,notCongress.
LiberalsshouldsupportatruckMBUFbecausedoingsowouldmeanlesspressureonthefederalhighwaytrustfundandstatetransportationbudgetsthatgetincreasinglypaidbyboostingcar
registrationfeesandgastaxes.Giventhatlow-incomeAmericanswhoownacardrivefewermilesonaveragethandohigherincomeAmericans,registrationfeesarearegressivewaytofundthe
roads—anditwouldonnetreducedgreenhousegasemissions.
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TRUCKINGINDUSTRYOPPOSITION
Anyindustrythatisprotectedorsubsidizedbygovernmenthasamajorstakeinprotectingthoseadvantages,andthetruckingindustryisnodifferent.IntheiradvocacyagainstatruckMBUF,theymakeanumberofflawedarguments.
Claim1:TruckingAlreadyPaysaLot
Thetruckingindustryclaimsthatsincetrucksalreadypayalotinvariousfeesthatanyincreaseisunfair.Butthat’sabitlikesomeonesayingtheyalreadypayalotontheirmortgage,even
thoughthepaymentsdon’tcovertheprinciple.Theissueisnothowmuchtruckerspay,orwhatthetrendsinpaymentsare;it’showmuchdotheypayrelativetothecoststheyimpose?Andasnoted,theevidencesuggeststhattheindustrydoesnotpayenough.
Ofcourse,thetruckingindustrycriesthatitwouldbediscriminationiftheyweretohavetopaymoreandhaveanMBUF.AsatopofficialattheAmericanTruckingAssociationwroteinalettertoCongress:
Ourindustryhaslongsaidwearewillingtopayourfairsharetofinanceneeded
improvementstoourinfrastructure,andwesupportincreasinguserfees.However,aswemadeclearwhenthistypeoftaxwasfloatedandscuttledlastyear,weareunwillingtobesingledoutwithdiscriminatorytruck-onlyfeestopayforour
nation’sinfrastructureneedsandwillstronglyopposeanyefforttodoso.
12
IfhewerecomplainingaboutthepossibilityofCongressraisingtheirfeesabovewhattheiractualcostswere,thenhewouldhavealegtostandon.ButcomplainingthatCongressmightraise
theirfeestocoverthecostsofthedamagetheyarecausingislikeapersonwhobrokeawindowcomplainingtothejudgethatitisunfairforthemtohavetopaythefullcostofrepairingthe
window:“That’sdiscriminatory.Can’tIjustpayhalfandhavealltheneighborspaytherest?”
Claim2:IncreasedPricesforConsumers
Theindustryplaysthesmalltruckersympathycard,claimingwronglythatincreasedfees(to
matchthecoststheyimpose)wouldputindependenttruckersoutofbusinessandraisecostsforconsumers.But,bydefinition,theycan’tdoboth.Eithertruckersabsorbthehigherfeesortheydon’t.Therealityisthatiftruckcostsgoup,twothingswillhappen.First,atthemargin,therewillbeashifttoothershippingmodesforparticularrouteswheretheyareinherentlymore
efficient(air,rail,orships).Thereasonthenewchoiceswouldbemoreefficientisthat,by
definition,ifashipperhastochoosebetweennon-subsidedmodesofshipping,theywillchoosethemostefficientandlowestcost.Thismarket-basedshiftwillmeanhigherproductivityandalargergrossdomesticproduct(GDP)becausetheeconomyisabletoshipthesameamountofgoodswithfewerresourcesdedicatedtoit.
Second,totheextentcostsgoupfortheroutesonwhichshippersstillusetrucks,bydefinition,thecostswillgetpassedontoconsumers,aslongastruckingmarketsarecompetitive.Whiletheindustrymaynotbeabletopassalongallthecostsoftargetedtollstocustomersintheshort
run,truckersshouldbeabletodosointhemoderatetermandlongtermifthefeesarestableorchangedwithsufficientadvancenotice.Iftheydon’tpassthecostsalong,itisanindicatorof
anticompetitivemarketpower.Indeed,aTransportationResearchBoardreportarguesthatthesecostscouldbepassedontocustomers.
13
Inotherwords,stable,nondiscriminatorypricing,
possiblysupportedbynationalinformationsystemsthatlettruckersandshippersknowthe
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|APRIL2024PAGE
7
expectedcostsoftollsforanyparticularroute,shouldnotadverselyaffectthetruckingindustryasawhole—andwouldcertainlynotadverselyaffectthenationalfreightshippingindustry.Onereasonisthataper-milepricingsystemwouldcreateincentivestocombineshipmentsinways
thatminimizetripmileage.Forexample,theGermanheavy-vehiclecomprehensiveroadpricingsystemhasledtoa10percentdropinemptytrucksonlong-distancetrips,a7percentincreaseincontainersmovedbytrain,anda6percentincreaseinthepurchasesoftrucktractorsthat
emitlesspollution(inpartbecausetheirfeewashigherfortruckswithlowmileagepergallon).
14
Butthatisnotthefullstory.Becausetruckswouldnowbepayingmoreinroadfees,automobile
andlight-dutytruckdriversandtaxpayerswouldpayless,completelycancelingoutanyincreaseinshippingcosts.Anyargumentthatconsumerswillsufferfromendingtrucksubsidiesisjustwrong.
Finally,becausetruckswouldbepayingthetruecosttheyimposeonthetransportationsystem,therewouldbelessroaddamage,inpartbecausetheywould,atthemargin,switchtomore
efficientandlessdamagingtransportation,suchasfeweremptyloads,morefreightontrucks
withmoreaxles,andlessdrivingonroadsthataredamagedmore.Theresultofthat,ofcourse,isAmericantaxpayershavingtopaylesstorepairroadsandinsteadthatmoneybeingreturnedtothemintheformofeithertaxcutsorincreasedpublicspendingonthingssuchaseducation.
CONCLUSION
AsCongresscraftsreauthorizationoftheSurfaceTransportationAct,itshouldincludeamandateforDOTtoestablishandimplementamandatorynationwideweight-distancetaxthatwouldusemoderntechnologytochargetrucksbytheweightoftheaxlesoneachtruck,thedistances
travelled,andtheparticulartypesofroadatruckwason.
Thevirtueofatruck-firstVMTsystemisthatitistechnicallymuchmorestraightforwardthana
nationalsystemonallpassengercars.TrucksalreadyhaveGPS.Thecostofinstallingan
onboard“computer”tomeasurecostsandpaymentswouldberelativelysmallcomparedwiththecostsofatruckcab.Moreover,oncesuchasystemwasupandrunningandpeoplecouldsee
thatitworkedandhadnoprivacyimplications,thenpublicacceptanceofabroaderVMTsystemwouldbegreater.AndasEVsbecomeabiggerpartofthefleet,awayforthemtopayforusewillbeneeded.
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|APRIL2024PAGE
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AbouttheAuthor
Dr.RobertD.Atkinson(@RobAtkinsonITIF)isthefounderandpresidentofITIFandaformerchairofthecongressionallycharteredNationalSurfaceTransportationInfrastructureFinancingCommission.HisbooksincludeTechnologyFearsandScapegoats:40MythsAboutPrivacy,
Jobs,AIandToday’sInnovationEconomy(PalgraveMcMillian,2024),BigIsBeautiful:
DebunkingtheMythofSmallBusiness(MIT,2018),InnovationEconomics:TheRaceforGlobal
Advantage(Yale,2012),Supply-SideFollies:WhyConservativeEconomicsFails,Liberal
EconomicsFalters,andInnovationEconomicsIstheAnswer(RowmanLittlefield,2007),
andThePastandFutureofAmerica’sEconomy:LongWavesofInnovationThatPowerCyclesofGrowth(EdwardElgar,2005).HeholdsaPh.D.incityandregionalplanningfromtheUniversityofNorthCarolina,ChapelHill.
AboutITIF
TheInformationTechnologyandInnovationFoundation(ITIF)isanindependent501(c)(3)
nonprofit,nonpartisanresearchandeducationalinstitutethathasbeenrecognizedrepeatedlyastheworld’sleadingthinktankforscienceandtechnologypolicy.Itsmissionistoformulate,
evaluate,andpromotepolicysolutionsthataccelerateinnovationandboostproductivitytospurgrowth,opportunity,andprogress.Formoreinformation,visit
/
about.
ENDNOTES
1.RobertD.Atkinson,“APolicymaker’sGuidetoRoadUserCharges”(ITIF,April2019),
/publications/2019/04/22/policymakers-guide-road-user-charges/.
2.RandCorporation,“MovingTowardVehicleMilesofTravelFeestoReplaceFuelTaxesAssessingthePathForward”(RandCorporation,2011),
/pubs/research_briefs/RB9576/index1.html.
3.MatrackInc.
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