World review of road pricing: Phase 2 - case studies

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1. London (England)
2. Cardiff (Wales)
3. Rome (Italy)
4. Genoa (Italy)
5. Barcelona (Spain)
6. Madrid (Spain)
7. Copenhagen (Denmark)
8. Prague (Czech Republic)
9. Helsinki (Finland)
10. Stockholm (Sweden)
11. New York (USA)
12. San Francisco (USA)
13. Seattle (USA)
14. Auckland (New Zealand)
15. Shanghai (China)
16. Hong Kong (China)
17. Netherlands

World review of road pricing: Phase 2 - final report

London (England)

Current Status of Proposals

The current Central London Congestion Charge run by Transport for London (TfL) has been operational since February 2003. In this time it has undergone several variations altering arrangements for payments and arrangements for operations such as fleet schemes. Perhaps most significantly the charge was increased from £5 to £8 in July 2005.

There are variations planned for the scheme for February 2007 when it will be extended westwards and the hours of operation altered to finish earlier.

In the longer term, in around 2010, the current contract with Capita who operate the scheme will need to be re-tendered. This will provide an opportunity for TfL to significantly change the scheme. Options for this are currently being studied and could mean the area and type of charge could be altered along with the technology and payment structure.

TfL are also introducing a Low Emission Zone (LEZ) in London whereby all Lorries will have to conform to EU emission standards or be liable to a substantial charge.

Aims of Proposals

The original scheme was implemented with the aim to:

• reduce congestion;
• make radical improvements to bus services;
• improve journey time reliability for car users; and
• make the distribution of goods and services more efficient.

The scheme has also been proven to improve air quality and reduce levels of harmful emissions and particulates contributing to poor health and climate change.

The western extension was confirmed by the Mayor in September 2005 as being the latest stage in his endeavours to reduce congestion in Central London.

The LEZ objectives are to move London closer to achieving national and EU air quality objectives for 2010, and to improve the health and quality of life of people who live and work in London, through improving air quality.

Policy / Legislative Background

In order to implement the London scheme the government invested powers in Local Authorities, including TfL, to introduce charging schemes.

The Mayor of London, Ken Livingston, was elected to power with a commitment to Road Pricing (RP) in his manifesto. Similarly he was elected to second term with a commitment to extend the current scheme. The Mayor is generally seen to be pivotal in achieving implementation of the scheme.

The Transport Innovation Fund (TIF) programme has been a key driver for TfL in developing future plans for RP in London. The range of options and technology trials is seen to be key in leading the way for other local schemes and achieving acceptability and interoperability. TIF also provides the opportunity for TfL to develop RP in other areas of London in association with Local Authorities either as part of TIF or indeed where bids for funding have been unsuccessful but there is still a willingness to develop proposals.

London is in an advantageous position in developing RP schemes compared to other Local Authorities as it also operates the public transport network.

Although it is not a requirement under the Transport Act 2000 the Mayor has strongly hypothecated all net revenues from the scheme to go into transport improvements in London. The allocation of these net revenues is reported in TfL's annual monitoring reports. However, how this sits within wider budget allocations is unclear and has been an item of contention.

The Mayor laid out his transport strategy in The Mayors Transport Strategy, published July 2001, reflecting recommendations in the governments 1998 Transport White Paper. Mayors Strategy. This broadly covered the period 2001 - 2011 and proposes a Central London Congestion Charge. Variations to the strategy have been published to allow subsequent alterations.

There is no current commitment to alter the scheme substantially beyond the western extension although variations and scheme orders need to be signed by the Mayor it is not expected that any additional legislation would be required to alter the scheme significantly.

Options Under Consideration (Types of Charging)

There is currently no definite proposal for altering the current structure of the Charging Scheme when the scheme is retendered in around 2010.

Options under consideration include:

• extending the scheme to other local centres in London;
• extending the current cordon to cover a larger area of London; and
• charging on strategic routes.

The scheme currently expects the user to pay the charge within a certain time period, a system of ANPR cameras is used to check whether licences have been purchased and if not a user is sent a penalty charge notice (PCN). The system of ANPR cameras installed for the original scheme will require upgrading and replacing. The re-tendering of the scheme provides an opportunity to review what technology could be used that would support the London scheme and also advance interoperability with TIF and national schemes. To support this TfL is undertaking a substantial programme of technology trials. To date this has largely ruled out the use of GPS based technology within the timescale although Tag and Beacon is undergoing continued investigation.

The way vehicles are charged has been a key area of focus. Options for consideration include a cordon rather than an area charge (as used in existing scheme), the level of charge could vary by time of day, direction of travel and selected roads. The charge could be focussed on different vehicles in terms of vehicle type, fuel type or emissions category.

General Level of Awareness

Awareness of the London scheme is very high in the city although surveys have illustrated that Londoners knowledge of the scheme is variable. There is a focussed marketing and media campaign regarding the scheme that aims to improve understanding and awareness of the scheme's operation and impacts. However, awareness of potential long term variations to the scheme is low.

Public support has been tracked since before the implementation of the scheme. This has demonstrated how support improves with awareness of the scheme and when the positive impacts of the scheme are visible and reported. Surveys reported support to be around 40% in the run up to the scheme and between 50% and 60% in the year after. The western extension received greater support than in the run up to the Central Scheme although it is widely accepted that this support will vary significantly depending on who you ask. Residents in and around the extension area are generally more opposed to the scheme than those further away.

As well as understanding public opinion, consultation is mandatory for variations to the scheme order. TfL undertake a range of consultation targeting the public and stakeholders such as interest groups or business sectors. The biggest public consultation in the UK was undertaken as part of the western extension with over 100,000 replies. Opinions of businesses towards RP is generally mixed although in the case of the Central London Scheme is overall considered to be more positive than negative, although there has been some decrease in support since the charge increase to £8. It is reported that businesses are generally supportive in regards to any extension of RP across the rest of London.

One factor that is accepted to affect the support of the public for RP is the hypothecation of revenues from a scheme. In the case of London revenues must be used to improve transport in London. When opinion is canvassed over RP support levels are greater when asked about a scheme that will also invests in transport than when asked about RP generally. For example after the Central London Scheme began between 50% and 60% supported charging whereas over 80% of respondents said they would accept charging if public transport improved.

Sources

TfL 2nd Annual Monitoring Report:
www.tfl.gov.uk/tfl/cclondon/cc_monitoring-2nd-report.shtml

TfL 4th Annual Monitoring Report:
www.tfl.gov.uk/tfl/cclondon/pdfs/FourthAnnualReportFinal.pdf

Mayors Transport Strategy:
www.london.gov.uk/mayor/strategies/transport/index.jsp

Transport Act 2000:
www.opsi.gov.uk/acts/acts2000/ukpga_20000038_en_1

Cardiff (Wales)

Current Status of Proposals

At present there is no firm proposal to introduce Road Pricing RP) in the city. However, Cardiff is committed to developing a travel demand management scheme and has completed a feasibility study with its private sector partner, a consortium of Capita and Mowlem. Decisions on future priorities are expected to be made by the Council's Executive this autumn.

Aims of Proposals

Cardiff is developing a scheme to manage congestion and carbon dioxide emissions within the city in order to sustain economic growth, regeneration and to promote sustainability.

Policy / Legislative Background

It is considered that the general impetus for RP in Cardiff has largely been driven from a local perspective, although the policy is being reinforced by Regional and National policy.

The need for some travel demand management has increasingly been considered over the last 15-20 years as strong economic growth has been achieved with the successful regeneration of the city. However, the City is increasingly suffering from deteriorating transportation and connectivity which could lead to growth becoming unsustainable.

These findings were reinforced by a Cardiff Council commissioned report from Professor Michael Parkinson on the competitiveness of the City.

The feasibility study completed under a local consortium with Capita Mowlem was presented to the Council's Scrutiny Committee in September. Later this autumn, priorities for short to medium term proposals are expected to be produced. However, the Liberal Democrat-ruled authority has already said it will not commit to a RP scheme during the current administration, which runs until May 2008.

Additional legislation would be required if RP were to be implemented. Currently the feasibility stage has been introduced to Cardiff Council and the Welsh Assembly Government. However, the Welsh Assembly would have to pass specific legislation to allow area wide charging.

The decriminalisation of parking enforcement and, prior to that, the introduction of Controlled Parking Zones are both planned in Cardiff. This could make traffic management around any RP scheme more effective. This will allow the Council, rather than the Police to enforce offences.

One element that will be part of any proposed scheme is that there would have to be considerable investment on local infrastructure prior to implementation.

Options Under Consideration (Types of Charging)

Cardiff is keen to stress that any considerations at present are only at feasibility stage and are not formal or final proposals.

The RP scheme itself is envisaged to be operational during the AM Peak period only. It would be either an area or cordon based charge although with 2 distinct cordons, one inside the other. Potentially the central cordon would have a higher charge than the outer cordon.

Previously the level of the charge had been reported to be 'around £2'. The feasibility study reports a scenario where a scheme would operate between 7am and 10am Monday to Friday with possible charges of £4 for car drivers crossing outer corridor and £4 for inner zone which is likely to include the city centre and Cardiff Bay. Light good vehicles could pay a total of £10 and heavy goods drivers £12 for two corridors (based on 2006 prices). Such a scenario is forecast to reduce the number of cars coming into Cardiff from 63,490 by 50 per cent in first year.

It is envisaged that Cardiff could be used as a National 'Pilot' for implementing RP elsewhere in the UK.

Any delay is not wholly problematic as technology is at the core of developing a scheme for Cardiff and any proposal is likely to be influenced by the results of technology trials undertaken as part of the DfT's Transport Innovation Funding.

Some advancement on the operation of a potential scheme has been made through discussions with the DVLA in terms of what enforcement options would be feasible. Exemptions and discounts for the scheme would be incorporated although have not yet been defined. The feasibility study reports that discounts are likely to be made available to city residents and groups such as disabled persons.

Public Transport improvements and initiatives are expected to be at the heart of any proposal. There are already initiatives in and around the city centre being implemented for bus priority and Park and Ride. The impact of these will be monitored to establish what further plans should be proposed. It is expected that revenues from any scheme would be directed into local transport improvements, as is the case currently in London, for example building of Eastern Bay Link Road could be as much as £426m, funded by RP.

Overall it is estimated that to implement a scheme with sufficient investment in alternatives would require a budget of £300million - £500million. This compares with the 2006 annual budget for transport in Cardiff of £3.5million and in all of Wales of £100million. Therefore funding considerations are key to the future development of a scheme.

General Level of Awareness

The possibility of introducing a RP scheme in Cardiff is not considered to be 'New News'. There has been a fair amount of press coverage locally, and in the transport press. Cardiff Council has been trying to stimulate public debate on the issue.

As part of developing proposals there was a public debate held in late September 2006, and a conference relating to RP was held in Cardiff in October 2006. The scheme is not openly supported in some quarters - Conservative councillor Dianne Rees reports at the environmental scrutiny committee: 'I am concerned with the affordability - whether the prices are Cardiff and South Wales prices - and I'm also concerned about the impact on industry.'

A local news website recently published a comprehensive and balanced report on the result of the feasibility study.

Another local newspaper recently completed a poll of its readers about whether they would be willing to pay to drive into Cardiff to shop. A significant 94% voted against this, which shows the strength of feeling, although this does not reflect potential opinions of any proposal (e.g., if it were to operate during AM peak only it would be unlikely to affect the majority of shoppers).

Generally it is considered that opinion on the need for RP in the city centre is improving with increased awareness of environmental issues, particularly amongst the young.

As yet the Council have not undertaken any formal consultation with local stakeholders. They have held dialogue with the Chamber of Commerce and some individual businesses. Responses to the developments tend to vary. For example whereas environmental groups tend to be the generally positive the Federation of Small Businesses are more negative.

One of the next stages in developing the scheme is to understand the economic impacts on areas such as commercial yield, property prices and the impact on the Port of Cardiff.

Sources

Key contact:

Steven Phillips - Cardiff City Council

Additional information:

Keep Cardiff Moving:
www.keepingcardiffmoving.co.uk

Transport Times, 8 September 2006:
www.transporttimes.co.uk

Rome (Italy)

Current Status of Proposals

Plans for expanding the current restricted zone in the centre of Rome have been approved by the Municipality for two additional areas. Similar restrictions that currently apply in the city centre Limited Access Zone (LTZ) are being extended to the S. Lorenzo and Trastevere districts both of which are expected to be fully operational before the end of 2006.

There are proposals for other schemes incorporating travel demand management (TDM) measures, such as parking controls. These are currently being studied or are in the process of implementation, although none are directly considered to be Road Pricing (RP).

Since October 2001 Rome has operated an LTZ which covers 4.8 square kilometres in the core of the city centre controlled by an Automated Access Control System (ACS) enforcing a flat rate Road Price restricting access to authorised vehicles only with an annual permit.

Restrictions applied originally during 06.30 - 18.00 Mon - Sat. A series of studies and trials have been undertaken relating to extending the restrictions through the evening or overnight. Subsequently as of October 2006 restrictions in a slightly smaller area will be applied in the central zone on Fridays and Saturdays between 23.00 and 03.00 and in the two new areas there will also be extended periods of restriction.

Travel demand management measures (TDM) are implemented in concentric circles emanating from the historic city core where the LTZ operates. At the next cordon noncatalysed cars are prohibited and parking pricing is utilised. At the outer cordon an extensive system of park-and-ride lots and public transport improvements have been implemented to increase public transport mode share.

The LTZ has been seen as a success, decreasing traffic by 20% during the charging period. To further Rome's policy on sustainable transport a number of other studies are being undertaken in order to expand the current system. These are described below.

Aims of Proposals

The LTZ and associated Road Pricing strategies are intended to meet a number of objectives: to improve mobility; increase modal share to public transport; protect health; and preserve Rome's historical and architectural heritage. Reducing congestion is not described as a key aim, but is almost a byproduct.

Policy / Legislative Background

Rome is a partner in the CURACAO project (Co-ordination of Urban Road-User Charging Organisational Issues project) which is an EC funded project to promote RP as a travel demand management tool. This project commenced in May 2006. The project builds on previous EC funded projects such as the Progress project (2000-2004) which aimed to demonstrate and evaluate the effectiveness and acceptance of pricing schemes.

ATAC is the leading partner for Rome in CURACAO. ATAC is a public body under the control of the Mobility Department of the Rome Municipality and is effectively owned by Rome City Council. It owns all the public transport services in Rome and is responsible for the co-ordination of all private and public mobility in the City.

Rome has developed a General Traffic Master Plan which includes strategies to increase the mode share of public transport, improve the environment and protect historic heritage through prohibiting private car use in the core of the city. The Plan is a local strategy but does reflect EC policy on sustainable transport. It also receives national support as all projects are to be co-funded by Rome City Council and the Italian Environment Ministry.

Extending the scheme into the evening period was considered in order to reduce high traffic levels after the end of the restricted period. This was not to be taken forward within the central LTZ as traffic levels have been seen to be generally decreasing in this period since 2001 and gaining acceptability for any extension of hours was considered to be difficult. However, implementation is considered to be more easier as part of any new scheme.

Nationally there are distance-based tolls on Motorways using a Tag and Beacon system, 'Telepass'. There has been discussion about extending this to key major routes in addition to Motorways but this has not been decided. This type of expansion is problematic as currently this is only legislated for where there are health concerns through poor air quality.

Similarly the use of alternative technology to support a GPS based scheme would require additional legislation as currently this is not compatible with Italian law.

Options Under Consideration (Types of Charging)

A number of options are to be considered for implementation in addition to the existing LTZs.

• Charging coaches relative to use. There are currently issues relating to charging coaches for their actual use of the LTZs. This is mostly linked to technology and the partial service of GPS systems and associated compliance issues with Italian law. Further development of these plans is linked to upgradeable technology that will continue to be tested.
• Implement policies for powered 2-wheelers currently not subject to restrictions. There is an approved proposal to implement trials of new technology at the gateway to the central LTZ that will detect powered 2-wheelers. Consideration of a wider implementation and restrictions will take place after that.
• Reviewing parking pricing policies for flexible fares and innovative payment systems. A feasibility study has been undertaken to see how parking structures can affect traffic conditions. One proposal from this study has been implemented where parking charges in certain zones have been reduced to encourage parking there rather than in the city centre, with the aim of consequently reducing traffic levels.

The availability of public transport as an alternative means of travel has a high importance, although there are no definite plans for significant expansion. Other complementary measures are being utilised such as Park and Ride and flexible parking prices.

General Level of Awareness

There is not a significant amount of media coverage. Most articles are in relation to the previous EC Progress project or are studies by academic and interest groups.

Subsequently public awareness is not considered to be very high. The LTZs have a relatively small coverage area and as such are mainly used by residents and businesses, and the restrictions do not affect the majority of drivers' journeys and therefore limits awareness and opposition.

Limited consultation was undertaken in relation to the extended LTZs with the local authority and pressure groups being the main stakeholders. Approval of the Municipal Police was the only other requirement. However, ATAC are separately responsible for completing employer travel plans for all work sites with more than 300 employees and will therefore come into contact with this sector.

Sources

Key contact:

Fabio Nussio - ATAC, Rome

Additional information:

CURACAO report

Genoa (Italy)

Current Status of Proposals

A Road Pricing (RP) scheme is being developed as a part of the CIVITAS project called CARAVEL but, at this moment, no formal decision has been taken for its implementation.

Preliminary design for a RP scheme has been developed and is due to be considered by the City Council as one of a number of options in January 2007. Any further development will depend on the outcome of that assessment.

Aims of Proposals

The primary objective of a RP scheme would be to reduce congestion in the city centre.

Revenues from a scheme are expected to be reinvested in public transport, although there has been no formal commitment to date.

Policy / Legislative Background

Genoa has been involved in developing RP policy for some time. A trial has been completed as part of the European Commission (EC) supported Progress Project which involved partners across Europe researching different aspects of transport pricing schemes. The trial charged volunteers for access to a small zone in the city centre using Automatic Number Plate Recognition (ANPR) cameras.

Proposals for a RP scheme in Genoa have been developed through local strategy rather than national. The RP scheme will be introduced in the Genoa Urban Mobility Plan (UMP) report, which will define the overall strategy in mobility and transports for the next 10 years. The adoption of the UMP by the City Council is expected by March 2007.

The development of RP schemes has been driven in addition by partnership to the CARAVEL project where Genoa is one of four cities who have committed to developing a sustainable transport network. This is part of the wider CIVITAS Initiative which is partly funded by the EC to improve transportation systems across Europe.

The need for additional legislation in order to implement RP is not clear. Although it is considered that the existing legislation allows many aspects of a possible scheme including restricting access to zones and use of technologies, specifically;

• Law 193/99 delegating the Government to discipline distance traffic control systems.
• Presidential Decree 250/99 approving the regulation allowing municipalities to ask authorisation from the Ministry of Public Works concerning the installation and operation of distance traffic control systems in historical centres and areas restricted to traffic.
• Authorisation issued by the Ministry of Public Works to proceed against violations of traffic rules via means of automated control systems sending information to an operational centre managed by the urban police.

Options Under Consideration (Types of Charging)

A formal proposal for a RP scheme will be part of the UMP put forward for approval.

The scenario of RP being proposed to the City Council is not to a detailed level. On approval of the UMP, the plans will be developed in more detail.

It is expected that the scheme will comprise a cordon charge around the city centre. Charges may vary by time and vehicle, ranging between 1 and 5 euros for vehicles entering the zone. Hours of operation would cover the whole day, between 7AM and 8PM. Technology used is considered to be either ANPR or Tag and Beacon dependant on costs.

The current proposals differ slightly from the trial which used only ANPR technology. The area charged in the trail was only 2.5 square kilometres. This will be expanded considerably largely to maximise benefits and to address some issues that arose around social and economic equity.

It is expected that other measures (such as public transport improvements and arrangements for freight distribution) will be proposed as part of a wider package presented within the Urban Mobility Plan.

General Level of Awareness

There is little media coverage at present although there was some concerning the trial and involvement with the Progress Project. During that period surveys of public opinion were undertaken. It is felt that over time public opinion has become more positive. Two years ago around a third did not support charging, around a third did and a third did not know. It is now considered that support would be around 50%.

There has been no formal stakeholder engagement, although this is planned to take place after the plan has been approved. During that period the economic community is expected to be the main focus of engagement and their support will most likely depend on the structure of the scheme.

There are generally considered to be 3 stages to developing RP. The first is underway where the plan is being developed and proposed. The second stage involves political debate, which will commence after the plan has been approved. The final stage will involve considerable debate with stakeholders including the public.

Sources

Key contact:

Antonio Rossa - Comune di Genova (City Council)

Additional information:

Progress website:
www.progress-project.org

Civitas - Caravel website:
www.civitas-initiative.org/project_sheet?lan=en&id=3

Barcelona (Spain)

Current Status of Proposals

There are no current plans to develop a Road Pricing (RP) scheme in Barcelona.

However, there is a central area parking regulation called the 'Green Area ' which was implemented in 2005 as a travel demand management (TDM) measure. There results are currently being analysed.

There are also some motorway tolls when accessing the city, but they are outside of the city's administration.

Aims of Proposals

The aims of the Green Area are to reduce traffic congestion, improve citizens' quality of life and promote a more sustainable mobility framework.

According to the Urban Mobility Masterplan currently under development a main goal is to reduce the level of congestion by encouraging modal split towards more sustainable means of transport (public transport, cycling, walking, etc).

Policy / Legislative Background

There is no local policy on RP schemes and there is no commitment expected in the near future. As a result there is no legislation in place to allow for RP.

There is not considered to be any political support for RP schemes.

Barcelona has been involved in the EC funded Prima (Pricing Measures Acceptance) Research Project, 1999-2000, whose aim was to produce policy and guidance for road pricing. Conclusions from this project were:

• That there was originally a strong justification for financing road infrastructure by means of tolls;
• That there was growing political uneasiness with regard to tolls in terms of transfer to other 'non-tolled' urban regions and the share of suburban inhabitants that had to pay;
• That there were problems with the principle of providing alternatives to tolls as 'non-tolled' sections rather than a quality alternative in the form of public transport; and
• That the attribution of concessions was a key political issue.

All these reasons have contributed to the lack of progress with RP in Barcelona.

Options Under Consideration (Types of Charging)

The Green Area is a parking scheme where parking in the city centre is limited to residents only (or company-owned vehicles for companies within the area) between 8:00 to 20:00 hrs. This is intended to dissuade others from entering the zone by car.

It is reported that 6,000,000 daily trips in the city, of which around 1,150,000 travel through the city centre. Of these 93% would wish to find a parking space.

This policy relies on an effective enforcement of the parking restrictions, largely by removing illegally parked vehicles. This can result in additional revenue for the City.

In parallel with the Green Area there have been other TDM measures implemented in the City including:

• measures to improve and promote transfers to more sustainable modes such as increasing the number of cycle routes and bus lanes, increasing the number of on-street motorcycle parking spaces to reclaim and safeguard pavements for pedestrians, and increasing the number of un/loading spaces, etc.
• measures to promote transfer to other modes and reduce cars parking on public roads, by introducing Park and Ride and improving the network of off-street car parks.

If a RP scheme were to be implemented it would be expected that revenues would be reinvested into promoting alternative modes of transport (walking, cycling) and public transport.

The Green Area covers the City centre area. It would be expected that any RP scheme would cover a similar area.

General Level of Awareness

It is considered that RP in the City has not received any media coverage. Also no public surveys on the subject since Prima interviewed 500 residents of city, key public figures and some media analysis was conducted which indicated that there was more support for charging as a congestion relief and environmental oriented scheme rather than a financial scheme.

It is considered that there would be some resistance to the implementation of a RP scheme from some areas. Although no stakeholder engagement or consultation has been undertaken.

Sources

Key contact:

Cristina Pou, City of Barcelona, Tel: 93 402 34 07

Additional Information:

Report on Green Area (only Spanish or Catalan):
www.bcn.es/areaverda/castella/welcome.htm

Report on Prima research:
vplno1.vkw.tu-dresden.de/psycho/download/mcicam_conference/peter_gueller.pdf

Madrid (Spain)

Current Status of Proposals

Currently, Madrid's City Council is not currently considering the implementation of Road Pricing (RP). Any such commitment would normally form part of their mobility management strategy. Similarly, there is no commitment to investigating the introduction of RP.

It is expected, however, that a number of strategies will be developed addressing mobility management as a whole to deliver an integral approach that encourages the use of public transport, bicycles, motorbikes, walking and private car sharing.

Aims of Proposals

The objective behind the implementation of the new mobility management policies is to achieve an integrated approach to transport, environmental and spatial planning. The impact on the environment is particularly important.

There is recognition that because of the increase in travel and mobility there is a need to:

• promote the use of public transport;
• take actions that improve traffic flow in the city;
• promote alternative means of transport; and
• achieve an efficient distribution and delivery of goods and their effective loading and unloading.

Policy / Legislative Background

Travel Demand Management (TDM) measures involving encouraging the use of public transport, bicycles, motorbikes, walking and private car sharing are being employed rather than RP. Other policies have focused on the use of the public space and parking controls.

Over the period 2003 to 2007 efforts have been focused on promoting public transport, partly by measures that provide priority over private vehicles, including surveillance of bus lanes, new transport interchanges. Furthermore, a big investment is being made in extending the existing Metro lines to recently developed urban centres and the outer suburbs of Madrid.

In recent years, surveillance of traffic in the City has been increased to enhance flows and enforcement. An 800 personstrong force of 'Mobility Agents' has been created and deployed in strategic areas of the city - a first in Spain.

There is no existing legislation allowing RP. The current Mobility Regulations, which regulates vehicle and pedestrian traffic so they are compatible within the City's streets, would have to be modified. This legislation also regulates other uses and activities to preserve and promote road safety and accident prevention on roads that are the responsibility of the City.

There is currently no political support for RP to be implemented and for the foreseeable future other TDM measures will be the focus of the transport strategy.

Options Under Consideration (Types of Charging)

There are currently no forms of RP under consideration. Consequently there are also no studies on the impact of charging zones, cordons or charges per kilometre.

There has also been no consideration of technology, although there are many systems in place for automated traffic control, including CCTV, which could be used in the implementation of an RP scheme or TDM measures.

TDM measures are being employed across the City separately to any RP scheme.

Revenues from any transport charges or RP scheme would be considered as part of the city's budget.

General Level of Awareness

It is considered that the media are usually interested in matters that affect mobility and safety of the citizens, and at the moment media coverage is not considered to be in favour of RP.

Due to the lack of development of RP there is considered to be very little public awareness or RP, and that generally the public would be opposed to any such scheme.

been no engagement or consultation with stakeholders or the business community.

The City considers that it is very important to involve the public and different groups and sectors affected by mobility management policies as acceptance is important. It is believed that everybody has to realise that efficient energy consumption in urban transport has a positive impact on the environment and contributes to the improvement of the quality of life in the city.

Sources

Key contact:

Leonor Berriochoa Alberola - Madrid Department of Transport

Additional information:

Spanish Transport Plan:
www.fomento.es/MFOM/LANG_EN/DIRECCIONES_GENERALES/CARRETERAS/PEIT/

Copenhagen (Denmark)

Current Status of Proposals

There is no firm proposal for introducing Road Pricing (RP) in Copenhagen. A study has been completed of 3 possible scenarios for RP. The results of this are being debated within the City Council and a decision will be taken on how to progress, secure legislation and what level of funding to commit.

Aims of Proposals

Originally reducing congestion and improving the environment were key objectives of the scheme. Since the study has been completed it is felt that the traffic impacts would not be significant enough to warrant those objectives.

As a result reducing congestion is considered to be the primary aim, although there would be a secondary benefit of improving the urban environment.

Revenue is not a key concern for this scheme, although it is recognised that the use of revenues is key to gaining acceptability. Hence net revenues would be reinvested in local transport improvements.

Policy / Legislative Background

There is no formal commitment to introduce RP, although in the Traffic and Environment Plan 2004, there is support for reducing congestion and improving sustainable transport; mainly through improvements for cyclists and commitments to introducing Travel Demand Management (TDM) measures and improving public transport. The Plan does recognise that this alone is not enough to stop car traffic growth.

There are a number of potential clashes considered in gaining support from national government:

• The City Council is largely supportive of RP (around 2/3 support) and would wish to implement a scheme as soon as possible, whilst the national Government is generally opposed to such measures (around 2/3 oppose);
• Some national politicians have been considering a national scheme to replace current tax systems, although they would not expect this to be in place for at least 10 years. There is concern this objective would restrict progress in Copenhagen and in the long term would not provide any additional funding for transport improvements.
• The Government is currently freezing taxes and considers the RP charge could be seen as an additional tax and therefore not progressed.

It is worth noting that current road tax in Denmark includes a tax of 180% of the value of a new car when purchased. This results in fewer new cars on the streets and when cars are used they are made maximum use of to compensate for the tax.

The areas considered for a scheme are all within the city centre. The City Council's responsibility covers only around 100 square kilometres. The rest of the region is the responsibility of a number of municipalities. Copenhagen City Council is liaising with these municipalities to ensure traffic in the outer regions is successfully managed and TDM measures can be introduced where necessary. Together they are progressing RP as a joint project through the Transport Plan.

There is no legislation in Copenhagen and Denmark that would allow for a RP scheme. This would have to be introduced through the national government. Copenhagen does currently have some parking control powers to regulate traffic volumes.

The City Council are due to decide on how to progress RP; this is likely to include a plan for achieving legislation. It is expected that local politicians would lobby Government for support and commitment to the scheme. The general time scale proposed is:

• in 2007 the RP scheme needs to undergo detailed design;
• in 2008 the procurement process for implementing a scheme will be undertaken; and
• by 2009 the scheme could be implemented.

There is a local election planned for late 2009 and ideally RP would be operational for some time prior to this to allow the impacts to be understood. It is recognised that without a detailed proposal it is more difficult to gain support. The legislative process is considered to be the major factor that could affect this implementation date.

Copenhagen has been involved in the EC funded Progress Project. This involved a trial of volunteers with a pre-paid account to the value of there normal travel. There were three pricing structures, including a cordon charge and two variable distance-based charges. The trial used GPS-based technology and tracked their travel and associated costs. It was felt that this involvement did contribute towards progress for RP on pricing structures, but generally was not instrumental in the current drive towards a RP scheme.

Options Under Consideration (Types of Charging)

The study included three options for RP:

• A small City centre cordon;
• A larger City cordon; and
• A distance-based charge using GPS technology.

Impacts, costs and revenues were estimated for each option.

The smaller City centre cordon will produce the largest reduction in traffic within the cordon. There were, however, concerns over the impact on traffic outside of the cordon. It is felt that GPS-based technology would not be reliable enough for use in a scheme for many years. Therefore in the interest of implementing RP as soon as possible a larger city cordon would be the most likely proposition, which although having a lesser impact on traffic reduction would have a more consistent impact across the city.

A DK25 charge (around £2.50) in the peak periods would result in a 20% - 25% reduction in traffic levels. An off peak charge of DK10 was part of the model. At present it is not ruled out that a charge is a replacement for the current tax system is a possibility for consideration.

The study expected any scheme to have paid for itself within 1-2 years.

Automatic Number Plate Recognition (ANPR) cameras or Tag and Beacon technology is being considered for the scheme, although it is felt that ANPR cameras will need to improve substantially in performance terms and have reduced in cost to be considered as a preferred detection option.

Although TDM measures and public transport improvements are planned they are not necessarily linked to the introduction of the scheme. It is proposed that revenues will be hypothecated towards transport improvements but this is largely to improve acceptability rather than fund a wider package.

General Level of Awareness

Awareness of RP generally is felt to be high in Copenhagen, particularly as a result of the recent Stockholm trial and referendum. This was reflected in an increase in correspondence regarding RP to the City Council.

Surveys of Copenhagen residents have been completed. These show that residents are largely supportive of RP: 68% of respondents were supportive whereas 23% were opposed to a scheme. This is generally felt to be reflective of the national picture shown through surveys. However, it is accepted that certain sub-sections of the populations are likely to be less supportive, such as car drivers.

Limited consultation and interviews have been undertaken as part of the Progress project study. There is opposition to RP in certain areas, although this is felt to be the same as that when any traffic scheme, such as a change in parking arrangements, is consulted on. Businesses voiced concerns over loss in revenue, as there is a general perception that parking generates business.

It is felt that transport related business and organisations are more positive and realise the benefits of journey time improvements and want to have a 'Green' image.

There is political support for a scheme in the local City Council, although the opposite is the case in national Government. The administration is a right-wing administration, traditionally opposed to RP schemes. New elections at the national level must be held before early 2009 and extensive lobbying of the government is expected in order to raise support.

Sources

Key contact:

Brian Hansen Copenhagen City Council:
www3.kk.dk/traengselsafgifter.aspx (in Danish only)

Additional information:

Progress Website:
www.progress-project.org

Prague (Czech Republic)

Current Status of Proposals

There is no formal plan to introduce Road Pricing (RP).

A feasibility study was completed in May 2004 identifying possible scenarios for a scheme. At this stage it was proposed that a scheme could be introduced by 2007. This was not taken forward at that stage due to trips through the city having no alternative route.

There is now a general political consensus that RP could be implemented in the City centre by 2010 upon completion of the Ring Road, which would provide an alternative route for through trips.

Aims of Proposals

Initially, the project had two primary aims:

• To reduce levels of congestion in the City's central area and at other congested areas around the city to improve traffic flow efficiency and address excessive emissions problems which frequently exceed legal limits.
• To raise additional revenue to fund the completion of the strategic road and Metro networks. These projects have to be paid off by 2017.

This means that the road pricing scheme would have to generate the required net revenues in 10 years.

However, preliminary political discussions resulted in a consensus that it would be inequitable to impose charges for through traffic until the alternative bypass route (the Ring Road) was completed. For this reason the congestion charging project has not yet been considered in further detail.

Policy / Legislative Background

The development of the RP scheme was initiated in 2003, driven by Prague City Council who had a commitment to develop Travel Demand Management (TDM) measures in the Strategic Plan of the City (2000). This describes its goals in transport as:

• Attractive and reliable public transport through pricing policy and investment.
• Management and reduction in car use including ring roads for transit transportation and reduction of cars in city centre.

The City concluded that RP could not proceed until the Ring Road was completed to allow through trips to be rerouted, which is expected by 2010. The missing sections of the Ring Road will have to be constructed mainly in tunnel and are therefore expensive.

The Mayor of the City of Prague has stated that a road pricing scheme will only be introduced if the majority of the population support it via a referendum. The City of Prague Council would decide on the characteristics of a scheme.

Inhabitants of Prague are still major users of public transport (more than 50% of trips) and Prague has metros, trams and buses. The city authorities do not consider that major investment in improving public transport would be required.

To manage travel in the city centre parking charges are used to limit the length of stay and reduced parking space availability in the centre. There are also restricted access zones to vehicles over 3.5T within certain sections of the city.

There are currently charges that apply to foreign drivers on motorways and expressways in the Czech Republic, but not to domestic road users. Payment is made through the purchase of a motorway toll sticker. This system is to be replaced by a distance-based toll system which will also apply to domestic goods vehicles.

Currently there is legislation allowing vehicles to be charged entering into selected areas in cities, but residents and owners of businesses in the area can enter for free. This law would need to be changed to expand the charging scheme for all vehicles.

Options Under Consideration (Types of Charging)

There is no definite plan for consideration. 'Serious' discussions of the charging options are not expected until around 2008 as it is considered by the City that the scheme is at too early a stage to carry out any preparations.

As an initial step to implementing RP, the City had commissioned a local transport consultant (Sparta Consultants Inc.) to carry out a feasibility study into different options. This study was completed in May 2004 and identified three possible approaches:

• An area licence scheme within the historic centre of the city.
• A single cordon option at the city cordon.
• A double cordon option at the city cordon and an outer cordon.

The study assumed that all vehicles would be targeted, with reduced charges for residents of the zone - in the range of 1 to 5 euros. Revenues would most likely be reinvested in the highway transport network. Public transport is not considered to require significant investment.

There has not been significant discussion of other measures that would be introduced alongside RP. Although the completion of the ring road is pivotal to the introduction of a scheme.

The charging technology is not yet identified. Currently an electronic toll system produced by the Austrian company Kapsch is planned to be used for a national lorry tolling scheme using Tag and Beacon technology. This could be further utilised within a scheme.

General Level of Awareness

There has been some media attention regarding the potential future RP scheme.

It is not considered that there is currently opposition to the principle of the scheme at present. Although there has not yet been a real public debate and no public consultation has yet been carried out. The planned referendum regarding the scheme has not yet been undertaken.

For the feasibility study, local market research was carried out to obtain the views of Prague's population towards the different road pricing options. There was 30% more support than opposition for a charge of only 1 Euro in the historic centre. Although if a charge across the whole city was proposed then there was 2.5% more opposition than support.

There has been no formal stakeholder consultation. This would most likely occur when more detailed plans have been developed, although there is broad political acceptance that RP in the city centre is the only option.

Sources

Key contact:

Jaroslav Mach - Prague City Council

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