Sure, we could means test every toll and fee, but there's a different solution for that already - taxation.

There's a secret third option to congestion, which is you disallow some number of people at a time from using the facility, and people really don't like that one.

Dig deeper and you find it's a housing problem anyway. People can't afford to house themselves/their families in the cities they toil in. Build housing near jobs and there's less need to commute in from Tracy.