Toll-free roads sometimes get congested, such as during rush-hour traffic. During those times, we would say that these roads are

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Toll-free roads are nonexcludable because they are open for anyone to use without a direct fee. They become rival during congestion because one person's use of the road decreases the quality or availability of road use for others due to increased traffic and slower speeds.

Toll-Free Roads Sometimes Get Congested, Such as During Rush-Hour Traffic