The road in question isn't really a public, state-built road.
https://www.expresslanes.com/project-background
> In 2007, VDOT finalized a long-term partnership agreement with Capital Beltway Express, LLC – a consortium led by Transurban that would design, build, operate, finance and maintain the $2 billion HOT lanes project. Transurban and its partners provided a substantial upfront equity commitment to help fund construction and financed the rest of the project through private activity bonds and a TIFIA loan. The partnership enabled Virginia to leverage private capital to translate every one state tax dollar into four dollars of transportation improvements.
>Construction, managed by Fluor-Lane, began in 2008 and the new lanes opened for business in 2012.
>In 2014, Transurban invested an additional $280 million of equity to put the project on solid financial footing following impacts of the global financial crisis. The private sector has assumed the long-term financial risk for the project, including full responsibility to pay back all project debt.