Do they have the capital?
It also has to be profitable (or at least cost effective) dynamically. If overhead is X and tolls are set based on traffic patters to equal X+1, tolls might be so high they decrease overall traffic, reducing tolls to X-1, and resulting in a net loss.
You can't just slap it out there, set prices and think its going to work. Consider also, you've just traded one monopoly for another, one with perhaps a much larger administrative cost and one that your citizens would find much more annoying.
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