40$ is actually close to the market rate of time saved for a large percentage of people driving on that road. So, you might not think costs that don't evenly map to dollars as equivalent, but clearly the market disagrees.
> around in circles on a private track.
Easily tracked and an exception could be made, but most people would not feel the savings as worth the effort. Remember laws are thousands of pages long first and second order objections can easily be included.
PS: In effect every road in the US is a toll road, you might not agree with the prices and exceptions but people still pay billions.