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Project That Exempts Trucks With Suspended Axles From Toll May Become Law In 2026, Easing Freight Costs But Creating Billion-Dollar Deficits In Concessions.
Brazil is on the verge of a historic change in its road network. A proposal currently under consideration in the National Congress could completely eliminate the toll on suspended axles of trucks. If the law is approved, in 2026 drivers and transport companies could save millions of reais on the roads, reducing freight costs and bringing relief to a category suffering from high fuel prices and professional weariness. However, on the other side of the road, concessionaires warn of a billion-dollar impact on concession contracts, which could lead to litigation, increased rates on other axles, and even hinder new investments in highways.
The Current Rule And The Outrage Of Truck Drivers
Today, even when the truck is operating with the axle suspended — that is, without enough load to use it — the toll is charged as if the vehicle had all its axles on the ground.
The argument from concessionaires is that the concession contract provides for tolls based on the number of axles on the vehicle, regardless of their use at a given moment.
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For truck drivers, this practice is unfair. They argue that if the axle is not in use, it does not cause wear on the pavement or consume road resources, and therefore should not be charged. Movements within the category have already protested at toll plazas, raising the slogan that they “pay for a service they do not use.”
The Bill That Could Change The Game
In 2025, the Bill 18/2025, which proposes to end the toll on suspended axles, gained traction in Congress. The measure, according to its supporters, corrects a historical distortion and ensures fairer tolling.
The text stipulates that the payment should be calculated only on the axles effectively in use. In a six-axle trailer, for example, if two are suspended, the toll would only be charged for four. This could represent a immediate reduction of up to 30% in the amount paid on certain routes, depending on the type of truck and the load configuration.
Million-Dollar Savings For Transporters
The direct impact for truck drivers is enormous. Estimates from the National Transport Confederation (CNT) suggest that the measure could generate savings exceeding R$ 2 billion per year for the road transport sector.
This amount comes from the sum of thousands of trips across the country, especially on logistics corridors like BR-163 (Mato Grosso-Paraná), BR-101 (from the Northeast to the South), and BR-050 (linking Goiás to Minas Gerais).
This reduction is also expected to reflect in freight costs. If the operational costs for transporters decrease, part of this savings could be passed on to the transport rates for grains, meats, minerals, and industrial inputs. This reinforces the competitiveness of Brazilian agribusiness in the international market, where freight is a crucial component of the final price.
The Red Alert From Concessionaires
On the other side of the equation are the concessionaires managing the highways. The Brazilian Association of Highway Concessionaires (ABCR) asserts that ending the toll on suspended axles could create a billion-dollar deficit in already established contracts.
According to the entity, the contracts were drawn up based on tolls charged per axle on the vehicle, and any change to this rule disturbs the economic model. The loss of revenue could jeopardize maintenance works, widening projects, and investments in technology, such as monitoring and road safety systems.
There is also the legal risk: concessionaires may turn to the courts or the Federal Court of Accounts (TCU) to seek contractual rebalancing, which could result in increased rates for other drivers or an extension of concession terms.
The Legal Dispute That Is Emerging
If the law is passed, experts predict a wave of litigation. Lawyers working in the infrastructure sector warn that concessionaires will seek economic-financial rebalancing, a right that is stipulated in contracts whenever there are significant changes in the exploitation conditions.
This means that the immediate relief for truck drivers could come with increases for passenger cars and motorcycles, diluting the burden among other highway users. A kind of “domino effect” may occur with higher tariffs in segments that currently benefit from lower prices.
A Billion-Dollar Dilemma For The Government
The federal government also becomes part of this dispute. On one side, there is political and social pressure to ease the costs for truck drivers — a category deemed strategic, especially after the impact of the 2018 strike. On the other, there is the risk of creating a financial deficit in the concessions, affecting the credibility of road auctioning and deterring private investors.
Infrastructure experts warn that, without legal security, Brazil may struggle to attract foreign capital for its upcoming concession projects. And without private investment, the expansion and modernization of highways become even more challenging, hampering national competitiveness.
The Future Of Tolls In Brazil
If the project becomes law in 2026, Brazil may adopt a model similar to that of countries like the United States and Germany, where tolls are proportional to the effective weight transported. This model is considered fairer, as it penalizes those who cause more wear and benefits those who circulate with less impact on the highway.
However, for the measure to be effective, it will be necessary to invest in weigh-in-motion technology, automatic monitoring systems, and adaptation of contracts. This will require coordination between the government, regulatory agencies, concessionaires, and the transport sector.
The elimination of the toll on suspended axles could represent a historic victory for truck drivers, reducing costs and bringing more justice to the system.
But, at the same time, it could become a billion-dollar trap for the country if it leads to litigation, increases for other drivers, and loss of credibility in future contracts.
Brazil finds itself at a crossroads: ease the burden on those who move the economy on wheels or preserve the logic of concession contracts. The decision that Congress makes in 2026 could redefine not only the future of tolls but also the financing model for Brazilian highways.
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