China’s Ministry of Transport is seeking public input on a proposed amendment to the country’s Highway Law that would allow expressways to continue collecting tolls after their initial toll periods expire. The draft revision, announced on Monday, aims to establish a sustainable funding mechanism for the maintenance and upgrade of aging expressways as several reach the end of their current toll collection phases.
Under the current framework, toll revenue covers operational costs and debt repayment during an expressway’s toll period, but no clear financial model exists once that period concludes. Traditionally, maintenance of ordinary roads is funded through a consumption tax on refined oil products; however, this system does not extend to expressways, creating a gap in funding once tolls cease.
The proposed amendment would place expressways, along with independent bridges and tunnels, under unified government management once their debt or operational timelines expire. They could then continue to collect tolls at significantly reduced rates, according to a ministry official, though exact toll levels would be determined based on specific circumstances. Expressways that are integrated into municipal maintenance frameworks or fully supported by government funds would be exempt from further toll collection.
This user-pays approach is intended to better align costs with usage, meaning that frequent drivers would bear a larger share of expenses, while occasional users and nonusers would pay less or nothing. Revenue generated after the original toll period could be allocated to routine and major maintenance, operational management, emergency responses, and infrastructure upgrades, including digital and intelligent system improvements.
The draft also proposes stricter oversight of toll rates. Currently, provincial transport and price authorities at the same administrative level review and approve toll levies. Under the revision, approval would be elevated to the provincial government level to enhance regulatory controls. In addition, the ministry plans to implement supporting policies focusing on the management, auditing, and supervision of toll revenue and expenditures.
China’s Highway Law, initially enacted in 1998 and amended five times since, governs the construction and operation of the country’s road network. By the end of 2025, China’s roads spanned 5.58 million kilometers, including 199,000 kilometers of expressways. Although expressways compose just 3.6 percent of the total road network, they handle more than half of road freight traffic, underscoring their economic significance.
The Ministry of Transport says it will thoroughly analyze public feedback and collaborate with relevant departments before finalizing the amendment. Revisions also include updates to language on government financing and transport administration terminology. The ministry emphasizes that the changes are designed to address growing challenges linked to aging infrastructure and funding shortfalls as early expressways transition beyond their initial operational phases.