Delegate Adam Ebbin (D-Alexandria) has a post on his blog - In the Belly of the Beast - about the "abuser fees", explaining that they are a result of:
Many far-right conservatives in the House have taken a pledge not to consider ever increasing taxes for any public need, no matter how great. Because of this inflexibility, Republicans have come up with 'innovative' funding schemes like the abuser fees. Many Republicans rationalized their support for the Northern Virginia and Hampton Roads regional portions of the bill by voting to 'allow' the Northern Virginia Transportation Authority to enact taxes, rather than have the Commonwealth fulfill its core responsibility of maintaining and improving Virginia's transportation system.
I encourage you to read the rest of the post here.