The free roads will be allowed to deteriorate so the government can collect taxes (and lobbists goodies) from the toll roads.
This was obvious in the toll lanes in the middle of the 91 freeway west of Corona Californa. There is no incentive for the government to provide enough free lanes by widening it. The toll lanes only go along the few miles in the mountain pass where there are no alternatives.
In order to force people to pay the toll, there will never be free flowing trafic through that pass. California will ensure it stays that way. (and it helps prevent growth in Riverside county, so Orange and LA county like it)
The free roads will be allowed to deteriorate