By Jordan Meadows
Staff Writer
In a pivotal move toward addressing long-standing transportation challenges, the Raleigh City Council has endorsed a proposal that could reshape one of the city’s busiest corridors.
In a 7-1 vote during the May 6 council meeting, members supported a plan to implement tolls on Capital Boulevard (U.S. 1) — a key arterial road connecting I-540 in North Raleigh to Wake Forest — as part of a broader infrastructure improvement strategy.
The North Carolina Department of Transportation (NCDOT), in partnership with the North Carolina Turnpike Authority and the Capital Area Metropolitan Planning Organization (CAMPO), has long eyed converting Capital Boulevard into a full freeway.
Originally proposed decades ago, the project has been repeatedly delayed due to escalating costs and shifting priorities. Now, with traffic expected to grow from the current 32,000–65,000 vehicles per day to 44,000–75,000 by 2040, regional leaders are prioritizing the upgrade to meet the area’s explosive growth.
To finance the estimated multibillion-dollar project, the council approved Scenario 2, which integrates the toll system into the existing Triangle Expressway network. This scenario allows construction to begin in 2027, with an anticipated completion date of 2033.
However, since North Carolina law currently prohibits the conversion of free highways into toll roads, state legislative action will be required to exempt the Capital Boulevard project, a legal precedent already set by the Triangle Expressway.
The Turnpike Authority presented four tolling scenarios, including one that would toll all lanes and another with just a single tolled express lane in each direction. The cost to drivers would fluctuate depending on the time of day and traffic volume — a concept known as dynamic pricing.
While council members largely supported the tolling strategy as a means of expediting construction and limiting the financial burden on taxpayers, concerns about affordability and equity surfaced during the discussion. Councilwoman Megan Patton, the lone dissenting vote, represents a district north of I-540 and voiced strong opposition from her constituents.
She suggested that tolls should be reduced during nighttime or off-peak hours. She emphasized the importance of designing the road to accommodate future bus rapid transit. Councilman Jonathan Lambert-Melton added that he believed the project would proceed with tolls regardless, and what truly mattered was which option the council decided to support.
Community feedback has also been divided. While several local drivers who commute daily along the 10-mile stretch acknowledge the need for upgrades, they preferred the idea of a single toll lane rather than tolling the entire road.
CAMPO and the Turnpike Authority argue that tolling is the most viable way to cover the upfront costs. Under the chosen scenario, the project will be financed through toll-backed bonds, with the toll revenue repaying the debt over time. NCDOT reported a 67% increase in average project costs over three years, reinforcing the urgency to move forward before inflation worsens the funding gap.
Councilman Mitchell Silver said, “I think this is an important part of our regional transportation system.”
During the same council meeting, members also debated adjustments to the Cottages of Idlewild, an affordable housing project facing funding issues. As Raleigh expands, the intersection of transportation access and housing affordability will remain a pressing issue. Council members emphasized the importance of preserving local access roads as toll-free, to avoid disproportionate impacts on lower-income residents who may rely on the corridor for daily commutes.
With the council’s recommendation now formalized, the next hurdle is state legislative approval. Lawmakers will need to authorize tolling exceptions before NCDOT can proceed with construction planning. Meanwhile, community input will continue to shape the project’s final design, particularly around toll pricing and accessibility.
