The Downtown Tunnel on Interstate 264 (I-264) and U.S. Route 460 Alternate (US 460 Alt.) crosses the Southern Branch of the Elizabeth River in the South Hampton Roads area of Virginia, US. It links the independent City of Portsmouth with the independent City of Norfolk. In conjunction with the Berkley Bridge, the Downtown Tunnel connects to Interstate 464 to the City of Chesapeake and a continuation I-264 to the downtown and Waterside areas of Norfolk, and on to Virginia Beach. Owned by the Virginia Department of Transportation (VDOT), it is operated and maintained by Elizabeth River Crossings under a 58-year public–private partnership concession agreement. Formerly a toll-free facility, open road tolling was implemented on February 1, 2014 by VDOT to help finance repairs and expansion to the tunnel. History In the mid-1940s, Virginia legislators wanted to replace the aging vehicle ferry system that transported its motorists over the waterways in the state. Authorized by a revenue bond act passed earlier by the General Assembly, the commission decided during the 1946-47 fiscal year to construct toll bridges to replace ferry crossings on the York River at Yorktown and the Rappahannock River at [Grey’s Point] and to acquire from private owners the ferries that carried vehicles across Hampton Roads between the Norfolk and Lower Peninsula areas. Shortly thereafter in 1952, VDOT opened a two-lane tunnel (then named the Norfolk-Portsmouth Bridge-Tunnel). It was the first fixed crossing directly between Portsmouth and Norfolk across the Elizabeth River, predating the Hampton Roads Bridge Tunnel by five years. It was financed and built by the Elizabeth River Tunnel Commission with toll revenue bonds and was completed in 1952. Tolls at the time were 25 cents. In 1988 and 1989, during an expansion of I-264, the Downtown Tunnel was expanded to two tunnels (one two-lane tunnel in each direction), and the nearby Berkley Bridge was rebuilt and expanded to eight lanes, connecting I-264 to I-464, just short of (and above) the tunnel entrance. Tolls were also removed at that time. Between 2019 and 2022 there have been increased occurrences of fake toll violations to drivers. Many of the drivers who received these notices have never crossed the river, or even, been to the state of Virginia. EZ-Pass has been criticized for failing to address the fraudulent toll violations. Public-Private Partnership and 2013 Rehabilitation In 2004, VDOT sent out an informal request for information to private entities to