By GARRY RAYNO, Distant Dome

Two actions by a governor have historically upset lawmakers more than most others: rejecting a carefully negotiated budget agreement or blocking the state 10-Year Highway Improvement Plan.

Gov. Kelly Ayotte avoided vetoing the budget despite voicing several reservations, yet she rejected the 10-Year Highway Improvement Plan, triggering sharp reactions from legislators on both sides of the aisle late Friday.

The highway improvement plan typically advances with broad support and minimal partisan conflict.

Updated every two years during non-budget sessions, the process starts earlier when regional planning commissions and towns submit priority lists. Those requests are narrowed to essential projects required to keep the state highway network functional and safe.

After regional input, the Governor Commission on Intermodal Transportation conducts public hearings statewide. The panel includes the five executive councilors plus the governor representative, often the transportation commissioner.

The commission forwards its proposal to the governor, who this year recommended no alterations before sending it to the House. The Public Works and Transportation Committee then develops its version.

Following House passage, the Senate Transportation Committee refines the measure, and the full Senate approves its version for reconciliation with the House.

By the time the bill reaches the governor, it includes projects benefiting many areas: replacement of aging bridges, sidewalk repairs, and major initiatives such as widening I-93 from the I-89 junction through Concord to ease summer and holiday congestion.

The plan also supports construction jobs and allocates funds for smaller airports and transit facilities.

The 10-year program has faced limits for years because the legislature has not raised the gas tax or interstate tolls, duties once handled by the Executive Council.

Lawmakers passed a 4.2-cent gas tax hike effective July 1, 2014, but most new revenue went toward the I-93 expansion between Salem and Manchester.

Ten years ago, legislators authorized a 200 million dollar federal TIFIA loan to support local and state road and bridge work so the I-93 project would not reduce aid for municipal highways.

Until this year the state paid only interest on the loan, but principal payments began, raising annual costs from roughly 2 million dollars to 23 million dollars.

The most recent turnpike toll adjustment occurred in 2007 under the Executive Council.

A measure to double tolls for out-of-state drivers and in-state residents without E-ZPass cleared both chambers after the House overrode its Ways and Means Committee recommendation for further study and reached Ayotte desk.

The change would have generated between 340 million and 400 million dollars annually for highway systems.

Turnpike revenue falls short of federal matching requirements, so the state relies on credits from maintaining federal routes.

Federal highway funds available for matching were cut in the latest federal budget, yet the state lacks sufficient resources to claim all available dollars.

Ayotte openly opposed the toll increase. In her veto message for Senate Bill 627 she stated she does not support raising tolls and will keep working to make New Hampshire affordable for residents and attractive to regional visitors.

She issued the same statement when vetoing House Bill 2026 on Friday.

The added revenue from higher tolls would have allowed inclusion of three long-delayed turnpike projects in the 10-year plan.

Two projects had appeared in the commission plan but were dropped by the House Public Works and Highways Committee due to funding shortfalls. They involve widening exits 6 and 7 on I-293 in Manchester.

Drivers entering or leaving the turnpike at Amoskeag Circle must navigate tight merges and heavy traffic, especially during peak hours when backups extend onto the main roadway and approach roads.

The work is estimated at 232 million dollars.

Another long-awaited project covers the I-93 segment from the I-89 junction past exit 15, projected to cost 370 million dollars.

That stretch becomes heavily congested on summer Friday and Sunday afternoons, during race days at New Hampshire Motor Speedway, and on busy Columbus Day or ski weekends.

Summer backups can reach past the Hooksett tolls, creating extended stop-and-go conditions.

The governor emphasis on tourism appeal would benefit from smoother travel through the capital region.

Reactions from her own party were critical.

State Sen. Mark McConkey, R-Freedom and Senate Transportation Committee chair, described the veto as an unprecedented step that introduces needless uncertainty for communities, businesses, and infrastructure work statewide.

The previous governor to reject the 10-year plan was Craig Benson in 2004; he served only one term.

Deputy House Speaker Steven Smith, R-Charlestown and former House Transportation Committee chair, noted the plan has traditionally been a bipartisan effort that has directed millions into transportation infrastructure.

He called the veto of HB 2026 short-sighted and said it endangers critical projects across the state, delays needed work, and leaves aging infrastructure unaddressed longer. Smith added that the projects would have used dedicated turnpike revenue without new taxes.

Rep. John Cloutier, D-Claremont and ranking member of the House Public Works and Highways Committee, said the veto places politics above public safety and economic growth. He noted the plan supplies long-term certainty for road and bridge repairs, infrastructure modernization, and continued project momentum. Rejecting it creates uncertainty, postpones community projects, and risks losing federal funds, he said. Safe roads and reliable bridges should not serve as political tools.

Alternatives to a veto included directing the transportation commissioner to delay the three major projects so costs fall after her term, allowing other needed work to proceed.

If lawmakers cannot override the veto, which appears probable, no legal mechanism exists to advance projects, reverting to the underfunded plan from two years ago that already saw several initiatives paused for lack of funds.

A stronger approach may involve overriding the toll veto first, then attempting to override the highway plan veto. If that fails, a streamlined bill should be prepared for January to avoid losing another construction season on essential repairs.

Garry Rayno may be reached at garry.rayno@yahoo.com.

Distant Dome by veteran journalist Garry Rayno explores a broader perspective on the State House and state happenings for InDepthNH.org. Over his three-decade career, Rayno covered the NH State House for the New Hampshire Union Leader and Foster Daily Democrat. During his career, his coverage spanned the news spectrum, from local planning, school and select boards, to national issues such as electric industry deregulation and Presidential primaries. Rayno lives with his wife Carolyn and their two rescue dogs.