Toll Roads in International Practice and Toll Collection Mechanisms
Abstract: Investments in road infrastructure directly affect the economic growth of the state. Toll roads are becoming an effective solution for developing countries seeking to modernize their transport systems. International experience shows that, with proper management, such projects contribute to improving road quality, attracting investment, and reducing the burden on the state budget. In the Republic of Uzbekistan, the construction of toll roads is planned along the “Tashkent–Andijan,” “Tashkent–Samarkand” routes, and a toll tunnel at the “Takhtakoracha” pass.
Keywords: toll roads, public-private partnership, transport infrastructure, international experience, Uzbekistan, road management, risks, electronic tolling system, investment, PPP model, sustainable development.
The development of transport infrastructure, especially roads, is one of the key factors in economic growth, regional integration, and improving the quality of life of the population. In recent decades, toll roads have become an increasingly popular tool for modernizing the transport system in different countries of the world. Their construction and operation are often implemented with the involvement of private investment through public-private partnership (PPP) mechanisms.
A toll road is a road for the use of which a fee is charged. Toll roads are often high-speed motorways, bridges, and tunnels. There are three systems of toll road organization: open (with toll plazas blocking the main traffic flow), closed (collection upon entry/exit), and fully electronic tolling (no physical toll plazas, only electronic collection at entry/exit points and strategic sections of the main road) [1].
Despite widely recognized and well-studied socio-economic benefits, road infrastructure assets in most developing countries remain insufficient to meet current and future demand and are often maintained in an unsatisfactory condition. National road network development programs are forced to compete for limited budgetary resources with other capital-intensive infrastructure sectors (water supply, electricity) and social sectors (healthcare, education). The modernization and expansion of the road network require significant upfront capital investment and entail a long-term burden of maintenance costs [2].
Toll Roads in European Union (EU) Countries
The European tolling system represents an extensive, multi-level complex of heterogeneous models and mechanisms reflecting the cultural and institutional diversity of the continent. Toll roads in Europe have significant historical importance and have undergone substantial evolution over the centuries. These networks have played and continue to play an important role in financing, developing, and maintaining transport infrastructure throughout Europe.
In Lithuania and Latvia, toll roads exist for trucks weighing more than 3.5 tons. In France, Italy, and Spain, a unified network of toll roads has been established, serving tourist traffic and international business-class connections. In the United Kingdom, there is a single toll section with a length of 27 miles, commissioned in 2003. In Germany and Austria, small toll sections exist only in alpine resort areas [3].
European toll roads have distinctive features. They are constructed as expressways with divided carriageways of 3–4 or more lanes in each direction. The roads are built on dedicated structures and separated from surrounding terrain by protective barriers. This creates conditions for high-speed, comfortable transit.
Taxation and infrastructure charges serve as key instruments for financing the maintenance and development of the EU road network. Directive 1999/62/EC [4] institutionalizes the principles of “user pays” and “polluter pays,” enshrined in the Treaties, guiding Member States toward effective and fair application of tolls, internalization of externalities, and decarbonization of road transport in line with the Paris Agreement. The introduction of tolls and vignettes remains optional; however, for those Member States applying them, the Directive establishes mandatory rules.
In European practice, two basic mechanisms of toll collection are applied: (1) route-based (distance-based) tolls, and (2) time-based vignettes. Vignettes provide simplicity and predictability of costs but, in cases of infrequent or short trips, lead to inefficiency due to fixed access costs. Distance-based tolls better implement the “user pays” principle; however, inter-country and regional differentiation of rates, as well as their periodic revision, complicates budgeting and requires constant tariff monitoring [5].
Table 1 – Vignette Costs in European Countries, EUR [6]
Note: Electronic vignettes and online services are becoming popular among drivers. For toll roads in Poland, payment can be made on the website etoll.gov.pl. For Czech roads, vignettes can be purchased on the portal edalnice.cz.
Average toll costs in Europe are as follows [7]:
• Vignette (time-based permit): approximately 7–15 euros for 10 days — payment for access to the national toll motorway network within one country for 10 days (usually excluding specific special facilities such as toll bridges/tunnels).
• Distance-based tariff (per distance travelled): approximately 6–7 euros per 100 km in jurisdictions where tolls are collected based on distance; the amount depends on the route and number of toll sections, not on time.
• Special facilities (bridges and tunnels): one-time fee per crossing — from 1–2 euros up to 50–60 euros, depending on the facility, operator, and conditions.
Note: actual rates vary by country, operator, and payment method; seasonal indexation and differences by vehicle class are possible; the figures provided are indicative.
Evasion of toll payment on toll motorways in European countries is practically impossible and entails administrative liability. Control is carried out, first, by toll plaza staff, and second, by road police authorized to check the presence and correctness of payment.
Penalties for non-payment vary across countries: Austria – from 120 euros; Bulgaria – 153 euros; Poland – 500 zloty; Romania – from 53 euros; Slovakia – from 140 to 700 euros; Slovenia – from 300 to 800 euros; Hungary – from 46 euros; Czechia – from 196 euros when paid on the spot; Switzerland – 180 euros [8].
For legal and unhindered travel, a toll payment alone is not sufficient: the driver must also have valid liability insurance. When traveling outside the country of vehicle registration, an international “Green Card” insurance policy is usually required, confirming coverage of liability to third parties in participating countries.
Toll Roads in Tajikistan
Tajikistan is the first country in CAREC (Central Asia Regional Economic Cooperation) to introduce a toll road system, despite the low income levels of its citizens [9]. The first toll road in Tajikistan — the Dushanbe–Chanak highway — was commissioned on April 1, 2010. The route connects the capital city Dushanbe with Sughd region in the north of the country and ends at the state border with the Republic of Uzbekistan.
Toll collection is carried out by LLC Innovative Road Solution [10]. The equipment used for toll operation on the Dushanbe–Chanak section is leased by the Government of the Republic of Tajikistan from this company.
The 355-kilometer highway includes three tunnels with a total length of 11 kilometers. At present, thousands of people use the toll road daily, and there is no alternative route. The toll amount on the highway depends on the type of vehicle, its weight, and the travel distance [11].
Users of this road are divided into 4 categories, each with its own tariff. The first category includes passenger cars, along with minibuses and trucks with a capacity of up to 2 tons.
Table 2. Tariffs for road sections in Tajikistan, somoni [9]
Thus, traveling the entire length of this road (337.88 km) costs passenger car drivers 89 somoni, meaning that on average, drivers must pay 26.34 somoni ($2.43) per 100 km.
For residents of settlements located near the road, a preferential transit system has been established for the first vehicle category, amounting to 50–93% of the established tariffs [12]:
This decision was made in accordance with paragraph 16, part 1, article 22 of the Law “On Competition Protection,” paragraph 6 of the Regulations on the Procedure for Price (Tariff) Regulation for Goods and Services Produced by Dominant Entities and Monopolies, and paragraph 12 of the Regulations of the Antimonopoly Service, as well as the order of the head of the Antimonopoly Service of the country [12].
Toll Roads in Kazakhstan
As of today, the Republic of Kazakhstan operates 17 toll road sections with a total length of 3,221 km, including:
- 11 sections of the 1st technical category, with a total length of 2,161 km;
- 6 sections of the 2nd and 3rd technical categories, with a total length of 1,060 km [13].
By 2025, the toll road network will expand by 2.5 times, with 6,200 km of new roads becoming toll-based. In 2024, the system generated 48 billion tenge ($94.9 million), and by 2026 it is planned to reach full self-sufficiency.
For each kilometer of toll road, fees are collected in accordance with the approved tariff set for the specific section. At the same time, many local residents live along these roads and use them daily to commute to work, study, or home. The obligation to pay a toll every time one travels to one’s own home would contradict the principle of social fairness. To resolve this issue, Kazakhstan introduced an annual subscription for toll road usage [14].
The national company KazAvtoZhol [15] offers drivers monthly and annual subscriptions for travel on toll roads. The main condition is that the vehicle must be registered in districts adjacent to the toll section (the registration district is taken from the Ministry of Internal Affairs database) and must not have outstanding toll debts. Applications for subscriptions can be submitted online or at a customer service center or toll plaza [14].
Table 3. Subscription costs [15]
Toll Roads in the Russian Federation
In the Russian Federation, the total length of public roads (accessible to the general public) exceeds 1.5 million km. Of these, more than 3,500 km are toll roads. The cost of traveling on Russian toll roads depends on various factors: the specific highway, travel duration, day of the week, time of day, payment method, and vehicle category.
The main toll roads in Russia include: M-1 “Belarus”; M-3 “Ukraine”; M-4 “Don”; M-11 “Neva”; M-12 “Vostok”; Moscow High-Speed Diameter (MSD); Central Ring Road (CRR, A-113); Western High-Speed Diameter (WHSD); Bagration Avenue (SDKP — Northern Kutuzovsky Avenue Bypass in Moscow); Northern Odintsovo Bypass; Pskov toll roads; Ryazan overpass; Toll bridges across the Kama and Buy rivers in Udmurtia; Eastern Exit from Ufa [16].
Most toll roads in Russia are owned by the state company “Russian Highways” (Avtodor, not to be confused with Rosavtodor — the Federal Road Agency). The operator is Avtodor – Toll Roads, a subsidiary of Avtodor.
Table 4. Approximate toll rates on roads in Russia [17]
⁎Note: Transponder APD, OSSP, MSS, NKD – an electronic device for toll registration, issued by LLC “Avtodor – Toll Roads”, LLC “United Toll Collection Systems”, LLC “Northern Capital Highway”, and JSC “New Quality of Roads”.
Payment is made at toll plazas installed along the road. Payment can be made in cash or by bank card. If the road operates under a free-flow system, cash payment is not possible; payment can only be made by card in the personal account of the operator serving the road. Payment can also be made via a transponder.
A transponder is a special device that allows drivers to quickly pass toll plazas. It can be purchased at sales and customer service centers, toll points, marketplaces, and even at gas stations. Additionally, drivers can rent a transponder at a customer service center, which is convenient for those who rarely use toll roads, as the daily rental fee is only 20 rubles [16].
Payment can also be made via the “Free Flow” system. The “Free Flow” system works as follows: cameras placed on special frames above the road read the car’s license plate, while laser sensors determine its dimensions. The system records when the vehicle enters and exits the toll section. Based on this data, a bill is generated that must be paid [16].
Potential for the Development of Toll Roads in Uzbekistan
The quality of the road network is one of the most important elements of infrastructure, ensuring the efficient transportation of goods and services, as well as the safe and comfortable movement of people.
In 2018, more than 120,000 new passenger and freight vehicles were sold in Uzbekistan. Considering the average annual population growth of 1.7%, the number of vehicles will continue to increase. The larger the vehicle fleet, the higher the load on the road surface and the overall road infrastructure, which already today cannot be considered satisfactory.
Currently, 98% of freight transport (1 billion tons per year) and 88% of passenger transport (6 billion people per year) are carried out by road. As a result of increased financing of the sector in recent years, a positive trend has been observed in the development of the road sector. However, the pace of road network development lags behind the growth of freight traffic, and there is insufficient capacity on key routes. In Tashkent alone, 700,000–800,000 vehicles move daily, leading to congestion and environmental problems [18].
To address these issues, toll road construction is planned along the Tashkent–Andijan and Tashkent–Samarkand routes. In addition, the construction of 16 major bus stations, 80 multi-storey car parks, and 21 overpasses in the capital is envisaged. Special attention is being paid to improving the condition of roads of international and national importance.
The introduction of toll roads in Uzbekistan has its strengths and weaknesses, as well as opportunities and threats.
Table 5. SWOT Analysis of Toll Road Implementation Projects
Uzbekistan has a total of 227,620 km of roads, covering an area of 448,900 km². Road density amounts to 51 km per 100 km², ranking 88th in the world [19].
Despite efforts at improvement, the infrastructure faces a number of challenges [20]:
- Lagging pace of road network development compared to freight traffic growth;
- Insufficient capacity of existing roads on key trade routes;
- Low share of high-speed motorways;
- Highways passing through populated areas;
- Underdeveloped logistics infrastructure.
The Department of Public-Private Partnership Development under the Ministry of Economy and Finance has estimated that the cost of travel on the planned toll roads Tashkent–Samarkand and Tashkent–Andijan will be approximately USD 5–6. The maximum permitted speed on these toll highways may reach 120–150 km/h [21]. For freight vehicles, tariffs will be higher, e.g., travel along the Tashkent–Andijan route may cost up to USD 20.
To implement toll road projects in Uzbekistan, the public-private partnership (PPP) model is actively applied. For instance, with the support of the World Bank, the construction of the 303 km Tashkent–Andijan toll road is planned.
Literature:
[1] Кочеткова, А. В. Европейский опыт эксплуатации платных автомобильных дорог / А. В. Кочеткова, С. А. Чудинов // Архитектурно-строительный и дорожно-транспортный комплексы: проблемы, перспективы, инновации : Сборник материалов IV Международной научно-практической конференции, Омск, 28–29 ноября 2019 года. – Омск: Сибирский государственный автомобильно-дорожный университет (СибАДИ), 2019. – С. 320-324. – EDN WFXRJL.
[2] WB_GIF-Traffic_Demand_Risk.pdf
[3] Все о платных дорогах в Европе | Блог UTS
[4] https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A31999L0062
[6] Виньетка и дорожные сборы за км дороги в Европе за 2025 год
[7] Motorway toll in European countries - Tolls.eu
[8] Платные дороги в Европе — принципы оплаты и использования | Grand Voyage
[9] Стоимость платных дорог в Центральной Азии и России. Где дороже? | Новости Таджикистана ASIA-Plus
[10] IRS
[11] Tolls are coming to Central Asia highways - The Times Of Central Asia
[13] Платные дороги: как оформить годовой абонемент
[14] Как получить абонемент на проезд по платной дороге: 30 мая 2024, 10:49 - новости на Tengriauto.kz
[17] Тарифы на проезд по платным дорогам
[18] Шавкат Мирзиёев — о решении транспортных проблем в Ташкенте – Новости Узбекистана – Gazeta
[19] UNDP-Policy-Brief-RUS.pdf
[20] Road Safety Performance Review Uzbekistan RU.pdf
[21] Платные дороги из Ташкента в Андижан и Самарканд построят до 2026 года – Новости Узбекистана – GazetaNew Uzbekistan | Invest Uzbekistan
