Income.
The thing that has always struck me as bogus about speed limits is when you get on a toll road where you take a ticket as you enter. The time you entered is stamped on the ticket as is the location. When you get off the highway it would be easy enough to note the time elapsed and distance traveled. Obvious if you were speeding the whole way. Wouldn't catch people who speed from rest stop to rest stop to bring down their average, but it would be a huge deterrent to everyone.
I also spoke with a guy who operated the MV emissions inspection at DMV in CT. They put the car on rollers and run it at 30mph. The machine displays your simulated speed. He said he has never seen a car's speedometer agree with the machine and usually they were off by 5-10mph. At 30mph!
So, it is an inexact science.
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