After the EETS amendments, what is the future for electronic tolling in Europe?

In the realm of the European Electronic Tolling Service (EETS), three technologies — Global Navigation Satellite Systems (GNSS), Dedicated Short-Range Communications (DSRC), and Automatic Number Plate Recognition (ANPR) — play pivotal roles in ensuring efficient, accurate, and fair toll collection.

The sub-text to all of this however is that prior to the EETS amendments of 2019, the initial legislation mandated a GNSS-only approach.

This - understandably - caused disagreement, as nation states with mature DSRC-based electronic tolling systems pushed back, whilst newer member states (such as Hungary) embraced the notion of GNSS, as there was no technological legacy to justify or phase out. Hence, amendments were made to unwind the initial "binary" view, and in its place several technologies were made permissible for use by future EETS providers.

Three of the most prevalent technologies in the market are recommended in the legislation, but is there a clearly superior technology?

GNSS: Precision and Flexibility

GNSS, primarily driven by systems like GPS, Galileo, and GLONASS, is lauded for its ability to provide precise vehicle location data over expansive geographical areas. This precision facilitates distance-based tolling, which aligns well with the user-pays principle. GNSS-based electronic tolling systems can dynamically adapt to varied pricing models, such as congestion pricing or time-of-day rates, offering significant flexibility.

One of the critical advantages of GNSS is its ability to integrate seamlessly across borders, and this was precisely the reason why it was initially considered as the "only" option for the European Electronic Tolling Service. The intention being to reduce the complexity involved in electronic tolling for cross-border travel and freight transport (it is common to see long-distance hauliers with multiple on-board units, due to the lack of interoperability) and enhance the overall efficiency of the transport network.

However, GNSS is not without its challenges. Signal reliability can be affected by urban canyons, tunnels, and adverse weather conditions, compromising accuracy. Additionally, there are concerns around privacy, as continuous tracking of vehicle movements can be perceived as invasive.

DSRC: Reliability and Low Latency

Dedicated short range communication is a well established technology used for electronic tolling. Operating on the 5.8GHz frequency it is well suited to vehicle-to-infrastructure (V2I) communication and is capable of low-latency communication, which is crucial for real-time tolling applications.

The technology's reliability in transmitting data, even in challenging environments, makes it a preferred choice for many electronic tolling systems.

In the context of EETS, DSRC's ability to handle high-speed transactions is ideal, especially on busy motorways and toll plazas. This ensures minimal disruption to traffic flow and enhances the user experience by reducing the time spent at toll booths. However, the achilles heel of DSRC is the relative cost of wayside infrastructure, thus in the context of EETS it has been polarising, as those nations that have road infrastructure developed using DSRC naturally wanted to extract the value of the technology, whilst others nations without such infrastructure, are understandably much more supportive of other electronic tolling technologies.

ANPR: Versatility and Minimal Infrastructure

ANPR leverages optical character recognition (OCR) to read vehicle number plates, enabling toll enforcement without the need for on-board units (OBUs) or significant roadside infrastructure. This technology is particularly versatile, capable of functioning effectively in diverse environmental conditions.

One of ANPR's key strengths in the EETS framework is its minimal infrastructure requirement. Cameras can be easily installed on existing structures such as gantries and bridges, reducing installation and, potentially, maintenance costs. ANPR systems are also relatively straightforward to integrate with other technologies, enhancing their flexibility and scalability.

Moreover, ANPR provides a valuable tool for enforcement and compliance of electronic tolling. It allows for a back-up system that can be used to identify vehicles that are either mischarged or have evaded payments. Obviously though, being reliant on optical recognition, its effectiveness can be hindered by visual obstructions.

Comparing GNSS, DSRC and ANPR

In comparing these technologies several key factors emerge that influence their relative benefits and applicability within the EETS.

GNSS stands out due to its inherent ability to operate seamlessly across borders, making it highly suitable for the pan-European context of electronic tolling. DSRC and ANPR, while effective within specific regions or countries, face challenges in achieving the same level of interoperability without substantial coordination and standardisation efforts.

ANPR offers a cost-effective solution with minimal infrastructure needs, making it attractive for initial deployments or in regions with budget constraints. In contrast, DSRC requires significant roadside infrastructure, which can be cost-prohibitive for widespread deployment. GNSS strikes a balance by eliminating the need for extensive roadside installations but incurs higher costs related to the on-board units required and satellite communication infrastructure.

GNSS provides high accuracy in open environments, but its performance can degrade in urban areas or adverse weather conditions. DSRC offers reliable communication and low latency, essential for real-time electronic tolling and enforcement, but is limited by its range and infrastructure needs. ANPR, while versatile and capable of operating in various conditions, can suffer from recognition errors due to plate visibility issues.

So which tech is best for electronic tolling?

Obviously, GNSS offers unparalleled flexibility and cross-border integration, making it a strong contender for a unified European electronic tolling system, but the big issue is cost and ease of integration into a user community that is accustomed to OBU costs an order of magnitude lower than that required for a GNSS-based system.

DSRC provides reliable, low-latency communication suitable for high-traffic areas, though at a higher infrastructure cost, and ANPR delivers a cost-effective, versatile solution with robust enforcement capabilities but faces challenges in recognition accuracy and privacy concerns.

A hybrid approach that leverages the strengths of each technology appropriately is most likely in the medium-term with, for example, ANPR backing-up DSRC or GNSS infrastructure. Whilst the use of GNSS will be used for wide-area coverage, especially in territories that do not have pre-existing electronic tolling infrastructure.

Existing DSRC infrastructure will likely be utilised heavily by electronic tolling service providers that have previously invested in the technology, and they will expand into neighbouring countries where similar infrastructure exists, reducing their technical barrier to entry.

However, it will be interesting to see the impact of the EU Mobility Package, which necessitates the replacement of older tachographs in existing vehicle fleets with brand-new DTCO 4.1 devices. These devices have GNSS built-in which can be accessed by third-party service providers. So by the end of August 2025, commercial vehicles taking cross-border routes will have to be upgraded, potentially paving the way for European commercial fleets being prepared "by stealth" for a GNSS-based future after all...