DATE: 09/17/2025
TO: Honorable Mayor and City Council Members
FROM: Public Works Department
2025-353
REQUEST FOR CITY COUNCIL ACTION
SUBJECT:
REQUEST FROM COUNCIL MEMBER SPEAKE TO EXPLORE CORDON PRICING
FOR THE GREEN RIVER ROAD/FOOTHILL PARKWAY CORRIDOR TO DETER CUT
THROUGH TRAFFIC
EXECUTIVE SUMMARY:
This staff report asks the City Council to provide direction on procuring a potential feasibility study to implement Cordon pricing along Green River Road/Foothill Parkway RECOMMENDED ACTION:
That the City Council provide feedback and direction regarding procurement of a consultant to prepare a preliminary feasibility study to determine Green River Road/Foothill Parkway Cordon pricing’s legal feasibility, constructability, pricing strategy, implementation costs, potential revenue, and possible partnerships with other agencies.
BACKGROUND & HISTORY:
Council Member Speake submitted a Future Agenda Item Request Form, requesting staff to explore Cordon pricing of the Green River Road/Foothill Parkway corridor to deter cutthrough traffic. The Green River Road/Foothill Parkway is commonly used as an alternative route to/from State Route 91 (SR-91) and Interstate 15 (I-15) when traffic
volume is heavy on the freeways. This causes vehicle congestion in the city from nonresidents and contributes to accelerated wear and tear on city streets. With the new Route 241 and SR-91 toll connector project, an increase of fees of toll roads fees, continued state of construction, the state-mandated building of housing units south and east of Corona, and no alternative transportation proposed on SR- 91 or I-15 in the immediate future, motorists will continue to use Corona as a cut-through path of travel.
Cordon pricing is a type of dynamic zone-based pricing implemented during times of heavy vehicle congestion. In traditional Cordon pricing programs, any motorist who enters and exits the designated zone must pay a fee. Councilmember Speake proposed a program implemented within the city where license plate readers would be set up at strategic SR-91 and I-15 on/off ramps to capture vehicles that enter and exit the city within an allotted time frame. Those motorists would pay a toll equal to the rate on the SR-91/I15 road; however, if a vehicle is registered to a Corona resident, a 90% discount will be applied.
ANALYSIS:
Cordon pricing currently exists in six international cities (Oslo, Stockholm, Gothenburg, London, Milan, and Singapore). Five American cities (Vancouver, Portland, Seattle, San Francisco, and Los Angeles) and one international city (Auckland) are considering implementation. One American city (New York City) is in the process of implementing.
San Francisco, Los Angeles, and New York City were researched as part of this request and are further summarized below.
San Francisco started to explore Cordon pricing in 2019, but has paused the study since 2021 due to “the changing and fluid conditions surrounding traffic conditions and transit use.” The proposed location is in their downtown area, where motorists would be charged to enter the specified zone during typical AM and PM vehicle volume peak hours. Potential fees would be based on the driver’s income and a 50% discount for zone residents. The project's goals are to get traffic moving, increase safety, clean the air, and advance equity.
Los Angeles started to explore Cordon pricing in 2019, but has been refining concept designs for potential pricing zones based on modeling results and public feedback since 2022. The proposed locations are in the Santa Monica Mountains, I-10 West, and downtown Los Angeles. Potential fees would be reduced for low-income motorists, exceptions would be made for vehicles with three or more passengers, and a “transit credit” reward program would be offered for motorists who choose alternative transportation options. The project goals are to reduce congestion, enhance economic opportunity, reduce air and climate pollution, make roads safer and transit faster, and reinvest in the communities.
New York City implemented the first phase of Cordon pricing in January 2025 in the downtown Manhattan area. After the change in administration, the United States Department of Transportation (USDOT) has rescinded its approval of the pilot program and is threatening to shut down the program, but New York City has maintained its legal justifications in court. Motorists are charged to enter the specified zone from 5 AM to 9
PM on weekdays and 9 AM to 9 PM on weekends. Fees are based on the type of vehicle, with discounts applied to motorists with low income, people with disabilities, organizations transporting people with disabilities, emergency vehicles, buses, and specialized government vehicles. The program goals are to reduce traffic and travel time, provide safer streets and cleaner air, reduce emissions, improve quality of life, and raise revenue for public transit improvements.
A successful Cordon pricing program relies on a few factors such as, but are not limited to, the following:
Legislation allows applying fees to publicly funded and maintained roadways. A strong public transportation system.
Robust toll collection technology.
Easily identified and controlled entrance and exit locations for a specified zone. Visitors who travel to the zone for various attractions such as shopping and dining (typically a downtown area).
A pricing schedule that advances equity while balancing operation costs and financial objectives to raise revenue for public improvements. Close relationship with neighboring agencies.
A preliminary analysis of the Green River Road/Foothill Parkway corridor would consider the following:
Typically, highways constructed with Federal-aid highway funds cannot be tolled (23 U.S.C. § 301). The “Intermodal Surface Transportation Efficiency Act” may justify an exception per the New York City vs. USDOT case study. Further investigation from the procured consultant and the City’s legal team will be needed. Public buses and bike lanes are currently provided along the study corridor.
Corona falls short of the scaled public transportation infrastructure found in other cities that have/plan to implement Cordon pricing.
The City would need to hire a toll collection company with technology to easily identify vehicles that enter and exit the corridor and verify who qualifies for a discount.
Since the Green River Road/Foothill Parkway is a corridor as opposed to a zone, providing a clear message to people about which entrance and exit points trigger a fee may be a challenge. An analysis of which locations will and will not trigger a fee will need to be carefully strategized since there are many access points along the corridor and may incur negative impacts to adjacent roadways. Per Councilmember Speake’s vision, this program is aimed at motorists who are cutting through the City as opposed to limiting how zone patrons access an area.
If Cordon pricing were implemented within the City, local businesses may be negatively impacted by fewer patrons who pass through the City to/from their outof-area destination. Per Councilmember Speake’s request, his vision is to provide a 90% discount that would be applied to Corona residents; however, other cities use a 50% or less discount only for zone residents. With a 90% discount applied to all Corona residents, the program may struggle to achieve its financial goals.
The location of license plate readers at SR-91/I-15 on/off ramps requires coordination with Caltrans. Neighboring agencies should also be included in the discussion since SR-91/I-15 access could strain their current infrastructure.
Direction from the City Council is requested by staff, providing the following options on moving forward with Cordon Pricing in Corona:
Possible Options for Moving Forward with Cordon Pricing Option Pro Con
A: Do not proceed and
keep the status quo.
No additional resources
and funding required.
Congestion and increasing
maintenance costs on
Green River Road/Foothill
Parkway continue due to
cut-through traffic.
B: Wait and observe how
other programs are
progressing
The City can analyze
lessons learned from other
cities that have
implemented the program.
This allows time to observe
if upcoming RCTC/Caltrans
projects positively address
congestion in the city.
Congestion and increasing
maintenance costs on
Green River Road/Foothill
Parkway may continue due
to cut-through traffic.
C: Prepare a focused case
study by procuring a
consultant
The study will help provide
a holistic understanding of
congestion data collected
and determine if Cordon
Pricing works in the City.
The study cost ranges from
$300K-$600K and is not
budgeted. Funds would
need to be pulled from
another already funded
project to pay for the study.
FINANCIAL IMPACT:
There is no financial impact associated with the recommended action. The cost to procure a consultant to prepare a preliminary Cordon pricing study within the city ranges between $300,000 and $600,000, which was not budgeted as part of the current fiscal year. Should Council direct staff to move forward with the study, an appropriation would need to be approved by the City Council at a future time. The financial impact of full Cordon pricing implementation will be determined by a feasibility study and staff will return to Council at a later date with an appropriation request.
ENVIRONMENTAL ANALYSIS:
This action is exempt pursuant to Section 15061(b)(3) of the Guidelines for the California Environmental Quality Act (CEQA), which states that a project is exempt from CEQA if the activity is covered by the general rule that CEQA applies only to projects that have the potential for causing a significant effect on the environment. Where it can be seen with certainty that there is no possibility that the activity in question may have a significant effect on the environment, the activity is not subject to CEQA.
PREPARED BY: LEAH COLMARD, ASSOCIATE ENGINEER - TRAFFIC REVIEWED BY: SAVAT KHAMPHOU, PUBLIC WORKS DIRECTOR
ATTACHMENTS:
1. Exhibit 1 – Presentation
2. Exhibit 2 – Future Agenda Item Request
September 3, 2025
Savat Khamphou – Public Works Director
Rosie Ureno – City Traffic Engineer
Leah Colmard – Associate Engineer
That the City Council provide direction on whether to pursue a feasibility study to look at implementing cordon pricing/tolls on Green River Road/Foothill Parkway.
2
City Councilmember Speake's Request:
• On March 12, 2025, Councilmember
Speake requested staff to explore a
Cordon Pricing program for the Green
River Road/Foothill Parkway corridor
• Concept: the city would charge a
toll to vehicles entering the city on
Green River Road and exiting on
Magnolia, Ontario, or Foothill within
an allotted time frame
• The purpose would be to reduce the
impacts of motorists cutting through
Corona to avoid traffic on SR-91/I-15
freeways
• Suggests that Corona
residents receive a 90% discount
3
Is a type of dynamic zone-based pricing implemented during times of heavy vehicle congestion. Any motorist who enters and exits the designated zone must pay a fee. 5 Image from NYC.gov Image from New York Post
Example: New York City (further explored in presentation)
Case Study
• Get traffic moving
• Increase safety
• Clean the air
• Advance equity
1. Smaller zone in the downtown area (shown in darker shade)
2. Larger zone that adds Mission Bay and northeast neighborhoods (shown in lighter shade)
• Has paused the study “in light of the changing and fluid conditions surrounding traffic conditions and transit use”
• If the program is implemented, a 5-year phased approach to pricing is proposed Resources:
https://www.sfcta.org/downtown
1. Applied during weekdays 6 AM – 9 AM and 3:30 PM – 6:30 PM
2. Based on the driver’s income
3. Applied to enter the zone but not to exit
4. Uber and Lyft rides would be charged to enter the zone and any ride that starts within the zone (income-based discounts would apply)
5. 50% discount for residents within the zone
6. Bridge toll discount for individuals who crossed the bridge to enter the city
7. Expanded Muni discounts for low-income earners
6
Resources:
https://www.metro.net/projects/trafficreduction/
Case Study
• Reduce congestion
• Enhance economic opportunity
• Reduce air and climate pollution
• Make roads safer and transit faster
• Reinvest in the communities
1. Santa Monica Mountains
2. I-10 West
3. Downtown LA
• Forecasted to open in 2028
• Currently refining concept designs for potential pricing zones based on modeling results and public feedback
1. Full exceptions for 3 or more passengers or lowincome motorists
2. Reduced fee for low-income motorists
3. Transit credit reward program for those who
choose alternative transportation options
7
Case Study
• Reduce traffic and travel time
• Lead to safer streets and cleaner air
• Reduce emissions
• Improve quality of life
• Raise revenue for public transit
improvements
• Time of Day: 5 AM – 9 PM weekdays, 9 AM – 9 PM weekends • Type of Vehicle: passenger, small commercial vehicles, motorcycles, trucks, buses, taxis, vehicles for hire
• Crossing Credits: received if using a valid E-Z Pass during peak times • Connecting Between a River Crossing and Excluded Roadway: no toll applied • Discounts and Exemptions: available for low-income drivers and individuals with disabilities or organizations transporting people with disabilities, emergency vehicles, buses, and specialized government vehicles • E-Z Pass and tolls by Mail: must be paid within 30 days • Tolls will be Phased in by 2031
• The Federal Government has rescinded its approval of the program; however, the City stands firm on its legality. Resources:
https://portal.311.nyc.gov/article/?kanumber=KA-03612
https://congestionreliefzone.mta.info/
Manhattan Downtown Area
8
San Francisco
Downtown Area
Has paused the study “in light of the
changing and fluid conditions surrounding
traffic conditions and transit use”
Study on Pause
Los Angeles
Santa Monica Mountains,
I-10 West, Downtown LA
Forecasted to open in 2028
“Metro is refining the concept design for
these potential pricing areas based on
modeling results and public feedback.”
Refining Concepts
(Not Implemented)
New York
Downtown Area
60,000 fewer vehicles entering zone per day
$48 million generated during the project’s
first month
The Federal Government has rescinded its
approval of the program; however, the City
stands firm on the legality of the program
Implemented
January 2025
Cordon Pricing
9
Other Case Studies
Resource:
https://www.sfcta.org/downtown
10
Cordon Pricing Toll Roads
Primary Goal To manage traffic demand and reduce congestion, emissions, and noise in a specific, dense urban area.
To generate revenue for the construction, maintenance, and operation of a specific road, bridge, or tunnel.
Area of Effect Charges drivers for crossing a defined boundary or "cordon" around a city center or highly congested zone, rather than for using a specific road.
Applies to a specific road. You pay for the privilege of using that particular piece of infrastructure.
Fee Structure Often a flat daily fee to enter or drive within the zone. Some schemes use variable pricing that changes based on the time of day.
The toll can be a fixed fee or vary by distance traveled, vehicle type, or time of day.
Examples Systems have been successfully implemented in cities like London, Stockholm, and Singapore.
Found across many highways, bridges, and tunnels worldwide, including the Pennsylvania Turnpike, New Jersey Turnpike, and California's Toll Roads.
Potential
Impacts
Encourages the use of public transit, cycling, and walking within the city center. It can also reduce traffic delays and improve air quality.
Provides a faster travel option for drivers willing to pay and can fund transportation projects without relying solely on general taxation.
Councilmember Speake’s Suggested Location Focus 14
Cities with existing/proposed
Cordon Pricing have:
Corona Comparison:
Green River Road/Foothill Parkway
1. Legislation allows applying
fees to publicly funded and
maintained roadways.
Green River Road/Foothill Parkway was built utilizing public funds and will need to consider legality and possible legislation to allow this.
2. A strong public transportation
system.
Public buses and bike lanes are currently provided along the study corridor. Corona falls short of the scaled public transportation infrastructure found in other cities.
3. Robust toll collection
technology.
A toll collection company with technology to easily identify vehicles that enter and exit the corridor and verify who qualifies for a discount is needed. Information should be reviewed regularly to adjust for changing patterns.
4. Easily identified and
controlled entrance and exit
locations for a specified zone.
Location is more of a corridor (like a toll road) than a zone, providing a clear message to people about which entrance and exit points trigger a fee may be a challenge. An analysis of which locations will and will not trigger a fee will need to be carefully strategized since there are many access points along the corridor and negative impacts to adjacent roadways may occur.
15
Cities with existing/proposed
Cordon Pricing have the following
Corona Comparison:
Green River Road/Foothill Parkway
5. Visitors who travel to the zone for
various attractions such as shopping
and dining (typically a downtown
area).
Case studies are mostly in downtown areas with attraction to a “zone” not for pass by or cut-through traffic. Implementation may be a deterrent for non-residents who may frequent
businesses or establishments within the city.
6. A pricing schedule that advances
equity while balancing operation
costs and financial objectives to
raise revenue for public
improvements.
Per Councilmember Speake’s vision, a 90% discount would be applied to Corona residents, however, other city’s use a 50% or less discount only for zone residents. With a 90% discount applied to all Corona residents, the program may struggle to self support.
7. Close relationship with
neighboring agencies.
Coordination with Caltrans is required for the location of license plate readers at SR-91/I-15 on/off ramps. Also, neighboring agencies should be included in the discussion since SR-91/I-15 access could lead to additional strain on their current infrastructure.
16
Keep the status quo. Procure a consultant to prepare a
preliminary feasibility study to
determine legal feasibility,
constructability and Cordon
pricing strategy and bring back to
Council with some options.
Observe how other programs are
progressing. Present an update to
the City Council in 5-7 years and
revisit potential implementation in
Corona.
Pros:
• No additional resources and
funding required.
Cons:
• Congestion on Green River
Road/Foothill Parkway
continues due to cut-through
traffic.
• Maintenance costs continue
to increase due to traffic
volume.
Pros:
• Will determine if Cordon pricing
works in Corona
• A holistic understanding of
congestion data collected as part
of the study
Cons:
• Study cost from $300K-$600K
(not budgeted)
• Study would reduce available
funding for other projects
Pros:
• City can analyze lessons learned
from other cities that have
implemented the program.
• Observe if upcoming
RCTC/Caltrans projects
positively address congestion in
the city.
Cons:
• Congestion & maintenance costs
on Green River Road/Foothill
Parkway may continue due to
cut-through traffic.
17
That the City Council provide direction on whether to pursue a feasibility study to look at implementing cordon pricing/tolls on Green River Road/Foothill Parkway.
18
Image from New York Case Study
AKA: Congestion Pricing
Future Agenda Item Request Form
Future agenda items should be limited to new issues that emerge during the course of the year that are urgent and cannot wait until the next priority setting session of Council before requiring action.
Name: Wes Speake
Date: 3/12/2025
Title Name/Topic: Explore Cordon Pricing of the Foothill Corridor to deter cut through traffic
Background
1. What is the purpose for the request i.e. what you are trying to achieve or do? With the pending project on the 241/91, the ever increase toll rates, the continued state of construction, the state mandated building of housing units south and east of Corona and no alternative transportation methods in the immediate future. Foothill will continue to be the alternative to the 91 and 15 and unfairly impact to the streets and citizens of Corona.
I would like to eliminate one of the incentives to cutting though Corona which is skipping the toll lanes or cutting through Corona. This traffic impacts Coronans ability to move freely in our city and accelerating wear and tear on city streets. By implementing Cordon Pricing for use of the Foothill corridor or other east west drives to “Cut-Through “ Corona.
What is the Cordon pricing?
Cordon area congestion pricing is a fee or tax paid by users to enter a restricted area, as part of a demand management strategy to relieve traffic congestion within that area.
The idea would be to set up license plate readers at Green River Road and other Corona on and off ramps on the 91 and corresponding on and off ramps on the 15. If you trigger both an on or off ramp on both the 91 and 15 within a 60min time frame, you pay a toll equivalent to the 91/15 tolls for the same distance. Corona Residents who trigger both will receive a 90% discount or more on the rate.
mobilitygozone_report_final.pdf SCAG report
2. What is the scope of the work you wish to see done?
Complete a preliminary feasibility study to determine legal feasibility, constructability and cordon pricing strategy, implementation costs and possible partnerships with agencies.
Including potential revenue and specifying/restricting where this revenue could be spent.
3. Does this request align with the City’s Strategic Plan? How? #3 Sound Infrastructure- Connecting with our past
4. What is the desired timeline to have the issue considered by Council? Can wait until Policy workshop
5. Is the issue urgent requiring action before the next priority setting session of Council (Fall Workshop)?
No
Staff Section (To be completed by staff)
Approximate Staff Time Required: ____ Hours
Approximate Cost: $ ____
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