Challenge

TxDOT sought to modernize toll operations by leveraging an external agency’s proven infrastructure and processes—an approach unprecedented in scale within the U.S. tolling industry. The initiative required seamless coordination across multiple agencies, large-scale data migration, system integration across disparate tolling environments, and the establishment of new interagency agreements—all while maintaining uninterrupted toll operations and customer service. The project unfolded in a complex political, regulatory, and operational environment, increasing both risk and scrutiny.

Approach

The Milligan team led the management of this highly complex, multi-party tolling transition, serving as project manager and integration lead throughout planning, execution, and go-live. We coordinated program execution between TxDOT and HCTRA, developing and managing the Implementation Services Agreement and negotiating the Interagency Tolling Services Agreement (TSA) to establish long-term operational alignment. The team directed the migration of more than 850,000 customer accounts—drawn from an initial candidate pool of 2.5 million—into HCTRA’s back office, while overseeing integration of two roadside systems and a private concession system to support more than one million daily transactions.

To reduce risk and ensure continuity, our team managed detailed data mapping, extract/transform/load (ETL) strategies, incremental migration planning, and comprehensive testing cycles. This included trial migrations, daily transfer validation, roadside system redirection, and full production cutover testing. We also supported operational and policy alignment by streamlining revenue processes, replacing legacy custodial and lockbox arrangements, and reviewing business rules and compliance policies across agencies. Customer and stakeholder communications were coordinated to prepare customers for the transition and ensure alignment among TxDOT IT, Project Finance, HCTRA leadership, and executive stakeholders.

Results

The back-office migration successfully went live in November 2024, on schedule and without major customer disruption. The transition improved operational efficiency, reduced costs, increased revenue capture, and enhanced the overall customer experience. The project demonstrated the feasibility and value of shared tolling services across agencies and established a scalable model for future regional or statewide tolling initiatives.

Key outcomes included: 

• Migrated over 850,000 customer accounts into HCTRA’s back-office platform

• Integrated multiple roadside and concession systems, enabling management of over 1 million daily transactions

• Reduced operational costs through consolidation of back-office services

• Improved unpaid toll revenue recovery and revenue processing efficiency

• Delivered on-time go-live with positive public and industry recognition

• Maintained continuous toll operations and customer service throughout transition
  

Milligan’s leadership enabled TxDOT and HCTRA to execute one of the most complex tolling transitions in the U.S. to date. The project delivered measurable operational and financial benefits while improving the customer experience across multiple regions. By successfully navigating technical, organizational, and regulatory complexity, Milligan helped establish a new model for interagency tolling collaboration, positioning TxDOT for long-term efficiency, scalability, and innovation.