Considering that the highway is wide enough to expand to at least 5 lanes in each direction (probably 7 lanes, actually), there were other options besides jamming all the traffic as shown, with the option of paying a dollar per mile to be in the middle.
Express lanes or no express lanes, they should add another free lane to I-95 in each direction from Va. 123 to the 95/295 split just north of Richmond. Of course, now VDOT will have to pay some additional money to Transurban to do that, due to supposed resulting loss of toll revenue in the express lanes.