The Orange County Transportation Commission agreed to ask voters in November to create the first agency in the state that would collect money to build new freeways. The commission, seeking help for financially troubled freeway projects, voted to put the idea on the ballot to raise about $25 million from property taxes. If approved, taxes would not increase. Rather, the new agency would get a share of that portion of taxes paid on the increased value of property due to new development or redevelopment. A special freeway authority would be the first in the state and possibly the nation, transportation experts said. However, county Supervisor Bruce Nestande said it is doubtful that an Orange County Freeway Authority could operate without state legislation. The Board of Supervisors must approve the ballot initiative in early August, if it is to get on the November ballot without petitions signed by thousands of voters.