However, the free-to-drive passes would cost "X" amount of money per year, they wouldn't be totally "free".
That way, if you only traveled in your own county 95% of the time, you would only have to buy 1 county "Free-to-drive", and pay a toll for the rest of the roads....where as if you worked/traveled a lot in 2 counties, you could purchase 2 "Free-to-drive" passes, etc. etc.