IBTTA Inside Tolling 2025 by Prime Group

INSIDE TOLLING 93RD ANNUAL MEETING & EXHIBITION 11-14 OCTOBER 2025, DENVER, CO

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SHAPING THE INDUSTRY’S FUTURE

MILE-HIGH STAKES FOR TOLLING AND ROAD PRICING With Denver as the backdrop, Mark Muriello, IBTTA Vice President, Policy & Government Affairs, examines how funding and spectrum decisions will shape the industry’s future

s the tolling and road pricing industry gathers in Denver for IBTTA’s 93rd Annual Meeting & Exhibition, the timing could not be more critical. Our industry has achieved major advances in technology and operations, but the path forward depends on federal policy decisions that will shape how we fund and manage the nation’s transportation system. The questions at hand will determine how the federal government will contribute to enabling the revenues and technologies to

build and sustain the transportation system that will meet 21st century demands. These policy choices come at a time when the deep political divides and narrow margins in Congress challenge all decisions. Yet our choices now will fundamentally shape how we fund and safeguard the roads, bridges, and tunnels that keep America moving. Two issues stand out. The first is the looming reauthorization of the federal surface transportation programs when the Infrastructure Investment and Jobs Act

“Availability of resources is central to how we close gaps and ascend the mountain of future opportunity”

CTIO

Mark Muriello

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Colorado Transportation Investment Office Express Lanes

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expires in 2026. The second is a proposal before the Federal Communications Commission (FCC) that would reallocate the radio frequency spectrum used by electronic tolling and transportation, threatening to disrupt decades of progress in delivering effective, reliable operations and modern infrastructure. The availability of reliable and sustainable resources is at the foundation of both these policy choices. IBTTA maintains a basic tenet: “There are no free roadsTM” Availability of resources is central to how we close gaps and ascend the mountain of future opportunity. Whether it’s the financial means for funding and investment, or technological means for telecommunications and digitalization, dedicated and predictable resources are key.

Reauthorization Priorities — Closing the Gap with User-Based Finance The Highway Trust Fund, long the backbone of US transportation investment, is facing a reckoning. According to the Congressional Budget Office, beginning in 2028 the Trust Fund will fall into a deficit of $20 billion. By 2033, without new revenues, that shortfall could reach $241 billion. This red ink looms while we confront an existing $786 billion backlog in projects - mostly for basic repairs - which is growing in the face of inflationary pressures in the highway construction sector. For nearly a century, America has relied on fuel taxes to sustain its transportation system. That model no longer works. More efficient vehicles, electric cars, and alternative fuels are eroding the revenue base, even as the demands on infrastructure grow. Since 2008, Congress has had to transfer more than $275 billion from the general fund just to keep the Highway Trust Fund afloat.

“There are no free roads. Roads are paid for either through taxes, fees, or tolls” There are no free roads. Roads are paid for either through taxes, fees, or tolls. Userbased funding like tolling and road pricing are direct, fair, and dependable sources of revenue because they ensure that those who use and benefit from the system help pay for its upkeep. Tolling today generates $25 billion annually that is reinvested directly into highways, bridges, and tunnels. Beyond revenue, pricing the use of roads delivers broad benefits by improving congestion, travel reliability, safety, and economic growth. But just as importantly, tolling and road pricing provide a choice and direct-value proposition to those that use transportation facilities. Advances like electronic tolling have only strengthened the value for motorists, making payments fast, convenient, private, secure, and seamless. IBTTA urges Congress and federal policy makers to seize reauthorization as

an opportunity to modernize America’s infrastructure and embrace user-based funding. Our recommendations are straightforward: • Expand flexibility for tolling and road pricing. Give states and localities more tools to fund reconstruction, enhancements, and congestion management on interstate and federalaid highways by removing restrictions in federal law. • Invest in safety and bridges. Dedicate programs for bridge resilience, workzone protections, and eligibility for toll facilities under federal safety programs. • Streamline project delivery. Implement the One Federal Decision policy fully to cut duplicative reviews without sacrificing environmental standards.

Colorado DOT

US 36 express lanes

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Northwest Parkway

SHAPING THE INDUSTRY’S FUTURE

• Advance alternatives to fuel taxes. Support state and local pilots for road usage charging (RUC) and mileage-based user fees emphasizing implementation, and build a national framework for interoperability, enforcement, and fairness. • Accelerate connected vehicle deployment. Increase funding, interoperability standards, and public-private collaboration for V2X technologies. • Strengthen resilience. Expand programs to harden infrastructure against extreme weather and other disruptions. These priorities are not IBTTA’s alone. More than 60 national transportation organizations have joined together in calling on Congress to prioritize sustained investment, state flexibility, safety, and streamlined project delivery in the next federal surface transportation bill. Together, we are working with policymakers to advance funding and financing options that are reliable and sustainable. User-based revenue streams like tolling and road pricing are already proven in the US and around the world as effective elements to sustain the investment needed to strengthen the transportation network.

Spectrum Reallocation — Protecting the Backbone of Tolling While the funding debate plays out on Capitol Hill, another threat looms at the FCC. NextNav, a commercial provider of positioning, navigation and timing (PNT) systems, proposes to reconfigure the lower 900 MHz band to support a terrestrial GPS backup system and 5G broadband service. The plan would grant the company

exclusive nationwide licenses to more than half of the radio frequency spectrum where electronic tolling has thrived for more than 35 years. NextNav would lease more than 90% of this valuable spectrum to 5G broadband services at a handsome profit. This is not an abstract technical fight. The 902–928 MHz band is already used extensively. Licensed and unlicensed devices thrive in this band, supporting electronic tolling, commercial vehicle clearance, vehicle access and traffic management applications, railroad operations, and utility infrastructure monitoring, and millions of wireless consumer devices. The proposal would reduce the spectrum available to tolling by more than 20% and confine toll systems to operate in the gap between new, high-powered services which will operate by as much as 600 times more power than today's levels. This will introduce harmful interference, directly degrading toll system performance. The result will be missed transponder reads, dependence on less accurate collection methods, increased transaction costs, billing inaccuracies, revenue loss for infrastructure projects, reduced public trust, limited options for siting future toll projects, and downgraded bond ratings - leading to higher debt costs for infrastructure investment. A study commissioned by our coalition estimates these costs at $6.8 billion in equipment and transponder replacement, ongoing reader tuning adjustments, uncollected revenue, and customer disruption. Other uses of the band would also be devastated: the cost to unlicensed devices in the band, including RFID devices that support warehouse and fulfillment centers, security and alarm systems, and lighting and electrical systems, would range between $27 billion to $33 billion. The bottom line: the American public will pay the price, both financially and from disruption of their daily lives. In transportation and tolling, these costs will fall on public agencies, state and local governments, and the traveling public. This disruption is not necessary. More than a dozen proven PNT alternatives to strengthen GPS resiliency already exist and were highlighted to the FCC during an inquiry earlier this year. These options do not require spectrum changes that are costly and disruptive to current users including governments, businesses, and countless American consumers. IBTTA strongly supports strengthening GPS resiliency - but not at the expense of

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tolling and transportation systems and so many other vital industrial and consumer applications.

A Call to Policymakers The choices ahead on reauthorization and spectrum policy are opportunities for policymakers and industry to work side by side to keep people and commerce moving. IBTTA stands ready to partner with the administration, Congress, and state leaders to strengthen infrastructure, ensure reliable funding, and protect the technologies that support mobility. IBTTA’s international-perspective membership illustrates that tolling and road pricing have delivered safer, more resilient, and financially sound systems around the world. Global lessons can inform the US approach while showcasing how American leadership can inspire innovation abroad. The tolling and road pricing industry has proven its ability to generate revenue and deliver world-class, safe and reliable infrastructure. With the right policy choices and investments, we can reach new heights—building transportation systems that strengthen the economy, enhance safety and resilience, and improve quality of life for generations to come.

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Publisher/Managing Director Andrew Barriball Editor (Inside Tolling and ITS International) Adam Hill Sales Director Dan Emmerson Design Simon Ward, Andy Taylder Website Manager Sarah Biswell Cover image: © Rudi1976 | Dreamstime.com

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DESIGNING A BOLD, NEW FUTURE

James Hofmann, IBTTA President and CEO/Executive Director of NTTA, explains how a turning point in transportation has been the driving force behind IBTTA’s Five-Year Strategic Plan

“Our industry is at a turning point: gas tax revenues are falling, technology is reshaping operations”

ransportation has always been about change. We’ve gone from horse and buggy to highways, and now we’re moving into an era of automation, connected vehicles, and data-driven mobility. Every shift brings opportunities— and tough questions—about how we pay

for infrastructure, how we keep it running safely, and how we serve the people who count on it every day. That’s why, in my year as President of IBTTA, we’ve put so much focus on creating a five-year strategic plan to carry us toward our 100th anniversary. Our industry is at

James Hofmann

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IBTTA’S FIVE-YEAR STRATEGIC PLAN

a turning point: gas tax revenues are falling, technology is reshaping operations, and policy debates in Washington could affect everything from how we fund roads to the spectrum we need to keep toll systems working. We need a plan that faces these challenges head-on and turns them into opportunities. Since late 2024, hundreds of members have pitched in through workshops, breakout sessions, and SWAT teams. Their ideas came together into six domains that will guide IBTTA’s future: Advocacy, Customer Experience, Membership & Community, Knowledge & Innovation, Workforce Development, and Organizational Excellence. • Advocacy strengthens our voice by expanding policy and research capacity, building partnerships, and keeping user-based funding at the center of transportation policy. • Customer Experience keeps us focused on the people we serve, with a new committee dedicated to making every journey safer, easier, and more reliable. • Membership & Community is about strengthening the ties that hold IBTTA together—modernizing how we engage members and sponsors while widening

our reach to include more international voices, broader spectrum of companies within the larger transportation industry (including transportation technology companies), and academic partners. • Knowledge & Innovation launches new ways to share best practices—like an Innovation Exchange and expanded education—so members stay ahead in a fast-changing industry. • Workforce Development builds a pipeline for the future with career awareness campaigns, partnerships with schools, and digital resources to inspire students and young professionals, while simultaneously keeping existing toll practitioners and professionals. • Organizational Excellence strengthens IBTTA itself, with better tools, modern platforms, and systems that make us more effective and efficient in providing services to our membership.

We’ll be pulling it all together in Denver, where we’ll finalize this roadmap for the next five years and prepare the final plan for distribution before the end of the year. I want to thank those that stepped forward to lead our six domains, the hundreds of volunteers that actively participated in the development of the plan, our Immediate Past President, Bill Halkias, and all the leaders whose shoulders we stand on. And I couldn’t be more excited to hand things off to Joi Taylor Dean of the Richmond Metropolitan Transportation Authority, our 2026 President. Her theme—Driving What’s Next: Investment. Impact. Influence.—is the perfect follow-through, as she takes this plan from paper to practice. Together, we’re not just designing a bold, new future—we’re building it.

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Urban Mobility Solutions Systems that move cities

Recipient of the 2025 IBTTA Toll Excellence Award in Innovation for the New York City Congestion Pricing System

INNOVATIONS AND SOLUTIONS

URBAN MOBILITY SOLUTIONS: DELIVERING THE FIRST US CONGESTION PRICING SYSTEM

hen New York City launched the nation’s first congestion pricing programme in January 2025, the scale of the challenge was immense. The Metropolitan Transportation Authority Bridges & Tunnels’ (MTA B&T) Central Business District Tolling Program (CBDTP) had to succeed in one of the world’s most complex transportation environments — dense traffic, unpredictable patterns, historic neighbourhoods, and constant pedestrian activity. The programme created a Congestion Relief Zone (CRZ) in Manhattan’s Central Business District to reduce traffic and help fund transit improvements. Now, as the tolling community gathers for IBTTA’s Annual Meeting, the programme is approaching its first year of operations, with encouraging results that continue to build confidence in congestion pricing as a practical tool for cities worldwide. For its role in developing and implementing the technology behind this landmark initiative, TransCore was honoured with IBTTA’s Toll Excellence Award for Private Sector Innovation. The recognition reflects how advanced system design and AI-driven tolling technology from the private sector helped the MTA B&T achieve its ambitious project goals, while also highlighting the broader promise congestion pricing holds for urban mobility worldwide.

A System Built for New York Unlike traditional tolling deployments, Manhattan required a system that could work in an environment with limited space, unpredictable traffic flow and strict design requirements. To meet these demands, TransCore developed an all-overhead, video-based solution that uses AI with machine vision and machine learning to classify vehicles in real time and process transactions centrally. Multiple overhead cameras capture front, classification, and rear images of each vehicle, while neural networks process those images at the host system to ensure accurate tolling without in-road sensors. www.transcore.com

This approach reduced the need for roadside infrastructure, minimised disruption during a complex installation and accelerated schedule, and allowed the equipment to integrate seamlessly into the city’s landscape. Modular design and mobile units add resilience and flexibility, ensuring the system can adapt as conditions and needs evolve.

Early Results Performance data show meaningful improvements since the programme’s launch, with the technology consistently performing as designed in one of the world’s most complex traffic environments: • Vehicle volumes entering the CRZ have declined noticeably. • Commute times have improved significantly across key entry points. • Safety has improved, with fewer crashes and traffic-related injuries. • Air quality is beginning to improve, supported by reduced vehicle volumes and greater transit use. • New revenue is already funding critical transit upgrades, including railcar replacements, signal modernisation, accessibility improvements and major expansion projects. These outcomes demonstrate that congestion pricing can deliver measurable

benefits for mobility, safety, and sustainability, while creating a durable funding stream for infrastructure investment.

Looking Beyond New York Cities around the world have turned to congestion pricing to reduce gridlock and reinvest in transit. With New York’s programme now underway, the US has its first large-scale example of how such an approach can work in practice. The lessons from this deployment extend beyond New York City. They show that with careful design, strong collaboration and innovative technology, congestion pricing can be adapted to meet the unique demands of any city around the world. A Shared Milestone for the Industry For IBTTA members and industry peers, New York’s programme represents more than a single project. It stands as a shared milestone — evidence of what is possible when technology, policy and community needs align. As agencies worldwide look to improve mobility and strengthen transit funding, the CBDTP offers an important reference point. The solution TransCore developed and deployed in partnership with the MTA in New York is not the end of the story, but the beginning of a broader conversation about shaping the future of urban mobility.

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Innovation Never Stops Our global teams deliver smart, customized free-flow tolling solutions across the entire mobility lifecycle—seamlessly integrating services and systems to drive efficiency and success.

emovis.com

INNOVATIONS AND SOLUTIONS

EMOVIS: PIONEERING FREE-FLOW TOLLING MOBILITY

n an era of rapidly-evolving mobility, Emovis stands at the forefront of transforming tolling from a routine transaction into an efficient and userfriendly experience. Leveraging more than four decades of expertise and a global presence, Emovis delivers tolling solutions and products that integrate data, systems and people – ensuring millions of motorists traverse some of the world’s most advanced highways effortlessly. At the core of this innovation are products and solutions that deliver end-to-end support for tolling clients across the globe. Emovis Identify, a next-generation video tolling solution, is often described as ‘Pay by Plate’. Using Automatic License Plate Recognition (ALPR), the platform enables toll lanes to operate without physical tags or barriers, simplifying infrastructure for operators while delivering a frictionless experience for drivers. This approach is valuable for all motorists, bridging current infrastructure with a vision for free-flow mobility. Complementing its roadside technology, Emovis offers powerful back-office platforms that ensure efficiency and accuracy. Emovis Qualify ensures the accuracy and integrity of tolling data through a scalable, cloudbased Operational Back Office, while Emovis Verify combines automated image processing with expert review to maximise revenue assurance. Together, these platforms minimise revenue leakage, reduce operational costs and provide operators with

www.emovis.com

actionable insights for strategic decisionmaking. For commercial management, Emovis Transact offers a flexible solution to handle billing, reconciliation and customer management. Supporting a wide range of payment models – from pre-pay to congestion charging – the platform delivers full financial traceability, realtime dashboards and AI-driven analytics, allowing operators to optimise performance and enhance user experience. Further advancing mobility funding, Emovis provides a cloud-enabled Road User Charging (RUC) solution that captures mileage and location data through telematics or onboard diagnostics. This system empowers transportation agencies to generate revenue sustainably, while delivering a seamless, user-friendly experience. With privacy at its core, the platform anonymises trip data and integrates securely with DMV systems, ensuring compliance and scalability for both state and nationwide programs. Emovis’ leadership stems from a combination of advanced technology and operational expertise. Its solutions have been successfully deployed worldwide – from the UK’s Dartford Bridge to Virginia's Mileage Choice Program – always emphasising efficiency, revenue protection and user satisfaction. Its modular, ALPR-agnostic platforms can seamlessly integrate into existing systems or operate independently, allowing operators to adopt

technology at their own pace. Beyond traditional tolling, Emovis can develop innovative solutions, such as Dynamic Tolling, which enables operators to adjust prices in real-time based on factors such as time of day, congestion levels, or environmental objectives. These solutions can be tailored to the specific requirements and plans of each client. In this way, Emovis ensures a valuable partnership with its clients to design solutions that help cities adapt to changing mobility needs, ensuring that policies remain flexible and effective. Complementing its technology portfolio, Emovis provides comprehensive Customer Care and Smart Enforcement services. From omni-channel support, marketing and payments to enforcement solutions such as penalty notice processing and appeals management, Emovis ensures seamless compliance and maximises revenue for operators. Operating in 10 countries, the company combines global expertise with local impact, issuing millions of notices annually and handling millions of customer interactions efficiently. As cities, vehicles and roads become smarter, Emovis continues to redefine what is possible in tolling and mobility management by working closely with its clients to build trusted partnerships. By integrating innovative technology, operational expertise and user-centred design, the company ensures that tolling is not just a transaction but a seamless, reliable and future-ready experience.

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INNOVATIONS AND SOLUTIONS

MILLIGAN’S BOLD NEW CHAPTER: A GLOBAL VISION FOR THE FUTURE OF TOLLING

or over 13 years, Milligan Partners has been a trusted name in the tolling industry, known for building longterm, mutually-beneficial relationships with its customers through innovative, reliable solutions. This year marks a significant milestone in the company’s journey. In March, Milligan unveiled a new brand identity—a bold step that reflects its evolution from a highly-specialised consultancy into a global player shaping the future of tolling.

A Brand Built for the Future The decision to rebrand was not taken lightly. After more than a decade operating as Milligan Partners, the leadership team recognised that the company’s identity needed to reflect both its growth and its aspirations. With the help of an outside consultant, Milligan embarked on a process of introspection—examining what sets the company apart, what motivates its people, and how it can better serve the industry in the years ahead. The result is more than a fresh logo and updated visuals. It’s a clear statement of intent: Milligan is evolving to meet the dynamic challenges of modern tolling while remaining true to its roots. Expanding Horizons Across the Globe Milligan’s rebrand coincides with an ambitious global expansion. A standout example of this is the company’s work with the leading toll operator in the Philippines, Metro Pacific Toll Corporation (MPTC). Milligan has been instrumental in helping

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MPTC modernise its tolling system and transition to multi-lane, free-flow tolling. The project began with a deep analysis of MPTC’s current operations, team structure and system data processing to assess the feasibility of revamping its toll lanes. Once the Board decided to adopt allelectronic tolling, Milligan guided MPTC through developing a detailed RFP, crafting functional and technical requirements, reviewing proposals and providing subject matter expertise during evaluations and contract negotiations. Milligan is currently supporting MPTC’s efforts with regulators and the Department of Transportation to adapt legislative and enforcement frameworks for all-electronic tolling. It is also leading the design of a central toll operations organisation to increase efficiency in the region. This collaboration exemplifies how Milligan is taking its expertise worldwide to help partners embrace the future.

Staying True to Proven Processes Even as Milligan expands internationally, it continues to strengthen its reputation at home by staying true to its core values and trusted methodologies. A prime example is Milligan’s recent work coordinating the transfer of all back-office account management, operations and transaction processing from the Texas Department of Transportation (TxDOT) to the Harris County Toll Road Authority (HCTRA). The project included analysis of millions of existing accounts; data mapping and migration of eligible TxTag accounts; redirection

Brothers Matt Milligan (left) and Tyler Milligan (right) are both co-founders and managing partners of Milligan of three transaction-processing host systems including one private concession; implementation and transition of a custodial bank account programme; coordination and approval of five different authorising entities; and drafting and negotiation of a final Tolling Services Agreement between the two parties. In this work, Milligan team members applied the same in-depth analyses, crossfunctional collaboration, and results-driven processes that have become hallmarks of its approach. These partnerships demonstrate that, despite rapid industry change, the company’s foundational strengths remain intact: a focus on customer success, holistic problem solving frameworks and leadership teams directly engaged with client needs.

Looking Ahead The road ahead is bright. Milligan plans to keep bringing on talented people who share its passion for innovation and customer success. The company will continue investing in ideation and incubation projects, pushing boundaries to help agencies navigate the future of tolling. And as Milligan grows, it will carry forward the lessons of its journey so far—every challenge, every breakthrough, and every partnership that has shaped its path. In an industry defined by constant change, Milligan’s rebrand is a powerful reminder that progress is not just about new technology; it’s about a renewed vision, shared values, and a relentless drive to make the future better for everyone.

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INNOVATIONS AND SOLUTIONS

CONNECTING THE AGENCY AND THE DRIVER: DUAL FREQUENCY TRANSPONDERS

s the tolling industry continues to evolve, agencies face increasing pressure to modernise their systems while maintaining compatibility with legacy infrastructure. STAR Systems International is proud to introduce a new line of dualfrequency transponders: the Falcon, Eagle and Hawk, which are engineered to address today’s challenges while laying the foundation for tomorrow’s connected transportation networks. These advanced transponders mark a significant step forward for tolling agencies, particularly in addressing the complex needs of High-Occupancy Toll (HOT) and express lane operations. In many regions, High-Occupancy Vehicle (HOV) lanes are being converted to HOT lanes, offering solo drivers the option to pay for access. One major challenge in these systems is enforcement: how to accurately verify vehicle occupancy. Currently, most toll operators rely on tags which offer manual self-declaration. These are vulnerable to abuse, where drivers can simply set their tag to “3+” to take advantage of express lane policies, regardless of actual occupancy.

STAR Systems’ new dual-frequency tags offer a more robust solution. With integrated ultra-high frequency (UHF) and high frequency (HF/NFC) capabilities, the Falcon and Eagle enable toll agencies to communicate with more than just tolling readers. The UHF interface continues to support conventional tolling systems, while the HF/NFC interface allows interaction via smartphones or other consumer devices. This dual-frequency capability opens the door to more dynamic and secure validation methods. Once occupancy is verified using a mobile application, the appropriate setting can be written to the tag. The benefits of dual-frequency transponders extend far beyond HOT and express lane enforcement. At a strategic level, these transponders establish a new communication channel between agencies and their customers / drivers. Through the HF/NFC interface and mobile applications, these transponders can store and update a wide range of data beyond occupancy status, such as parking credentials, vehicle

registration, classification, or rental status, with a single tap from a mobile device. This opens the door to innovations in areas such as electronic vehicle registration, smart parking, fleet management and shared mobility services, where a single unified tag can enable seamless integration across multiple services. The result is a more connected, flexible, and user-centric transportation framework. Each product in our dual-frequency transponder line-up addresses specific needs. The Falcon and the Hawk provide a reliable upgrade path for agencies that want to add mobile interaction capabilities. The Eagle advances to the new Gen2V3 standard, offering enhanced security, improved read rates and more efficient data transfer. The new Hawk transponder is designed specifically for headlamps, allowing agencies to integrate the tag into vehicle designs or applications that preclude windshield tags. Beyond individual applications, these transponders align with STAR Systems' broader vision for T2X (Transponder-toEverything), a transitional strategy that bridges the gap between today’s RFID-based tolling systems and the connected vehicle future of V2X (Vehicle-to-Everything). While full-scale V2X systems may be years away, agencies and service providers need solutions that can operate in the hybrid world we live in today. Dual-frequency connected transponders act as a bridge, enabling real-time data exchange between vehicles, infrastructure and user devices in a way that supports both current and future developments. In an industry where innovation is often constrained by legacy systems and long procurement cycles, STAR Systems International is proud to deliver technology that is both forward-thinking and backwards-compatible. The Falcon, Eagle and Hawk are not just new products. They are bridging the gap to a smarter and more connected future.

AUTHOR Stephen Lockhart, CTO of STAR Systems International www.star-int.net

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