Consultation on Cambridge's Sustainable Travel Zone reveals widespread opposition

I wrote a couple of months ago about how poorly plans for a blunt congestion charge for Cambridge (UK) were going, in terms of public response, and this seems to be continuing following publication of the results of formal public consultation into what is being called a "Sustainable Travel Zone".

The Sustainable Travel Zone would be a single area charge (£5 for cars but much more for trucks) across virtually all of metropolitan Cambridge, which would operate 12 hours a day weekdays only. It would legally be a congestion charge, and would effectively emulate London, except for its scale of operation. Whilst the London congestion charge only affects a tiny proportion of greater London (separate from the Ultra Low Emission Zone), the Cambridge Sustainable Travel Zone would affect all of Cambridge. Why? It would appear to be to ensure that it would raise enough money to pay for the significant increase in bus services.

Rarely have congestion pricing schemes ever been publicly accepted if sold on the basis that it is about raising money (effectively a sophisticated form of tax) rather than reducing congestion. The record in the UK is that several cities have attempted to progress congestion charging on the basis that it would raise a lot of money for public transport (see Manchester and Edinburgh), and been rejected by the public.

By contrast, congestion pricing has been successfully advanced in Stockholm because it was about reducing congestion, whereas it saw considerable opposition in Gothenburg because that is about raising revenue. It is difficult, although not impossible to get support for such a scheme as a revenue raising instrument, but it would appear to be that people in Cambridge are not warm to the idea.

Cambridge News reports that although 70% of the population supported the transport improvements, 58% opposed the Sustainable Travel Zone/congestion charge. Only 34% supported the Sustainable Travel Zone as proposed. 

Another report breaks down the results in more detail:

61% of those aged 16-24 who responded to the consultation were in favour of the charge

64% of those aged 55-64 opposed the charge.

Of those living within the proposed zone boundary, 49% were opposed and 46% in favour.

Those living outside the boundary were 60% opposed, 32% in favour.

Key concerns expressed were those wanting more exemptions, thinking the £5 charge was too high and thinking residents should have an exemption.  Many wanted Addenbrooke Hospital excluded from the zone. 

So what now?

29 June is the date when the Greater Cambridge Partnership meets to consider what to do next. It could just plough on, but it may be better to think about some of the ideas I wrote about before on how to phase in charging.

1. Just introduce it in the AM peak only at first, in part to demonstrate the effects, but also to encourage some time-of-day shift in travel (which many would rather do compared to shifting mode). It would also give some idea of the elasticity of demand in the AM peak for driving to better inform forecasts for revenue. Sure it won't be enough revenue longer term, but then the improved public transport package can be focused on the peaks instead. Expand it to the PM peak later, as that would capture more traffic likely to mode-shift, rather than inter-peak traffic. 
2. Replace the blunt area charge with two cordons.  One in the city centre (whether it is a tight city centre or one bounded by the effective ring roads of the A1303, A1334, A603), one at the proposed outer boundary.  This means people won't be charged for simply moving their cars short distances, and will focus attention on entering Cambridge and then central Cambridge. 
3. Have a shoulder charge (at half price) for the first and last half hour to encourage time of day shift and provide more options for motorists.
4. Dedicate some of the net revenues to some improve road infrastructure this means fixing substandard intersections, and although there will be resistance to using the money for maintenance (as it would reduce funding from other sources), some of what motorists pay should benefit them.

It is plausible that the full Cambridge scheme could be introduced over time, but any combination of the above ideas can provide a pathway of phasing it in. Say an inner cordon could operate 0700-1900 (with a half hour shoulder fee), but the outer cordon only 0700-1000 and 1600-1900.  

 

Denmark implementing heavy vehicle RUC from 2025 - but not without protest

Initial Danish heavy vehicle charge network

From 2025 Denmark will be the 12th jurisdiction in Europe to have some form of distance-based road user charging (RUC) (or tolls) for heavy vehicles.  Some may argue about the definition (as two of these are essentially network tolls using tolling technology) but the others are Iceland, Switzerland, Germany, Austria, Czechia, Slovakia, Poland, Hungary, Belgium, Bulgaria and Russia.

Key elements of the new scheme, called the "Kilometer-based toll":

• On 1 January 2025 all heavy vehicles with a Gross Vehicle Weight of 12 tonnes or above will have to pay per-kilometre road user charges based on the vehicle's weight and emissions rating. This will apply on the national road network and other main roads, including public roads in "environmental zones". This is a network of around 7,300 km (around 9.7% of public roads, but the roads that carry most of the freight traffic).
• On 1 January 2027 the charge will be extended to all heavy  vehicles of 3.5-12 tonnes Gross Vehicle Weight as well.
• On 1 January 2028 the charge will apply to all public roads in Denmark (a network of around 75,000km).
• On 1 January 2025 Denmark will withdraw from the Eurovignette scheme, which applies to trucks 12 tonnes and above, and requires trucks to prepay a set number of days they are driving on the national road network (trucks can buy an annual Eurovignette).

Average charges will be DKK1.2 per km in 2030 (US$0.17 per km). 

The policy focus is on reducing CO2 emissions. It will apply to all trucks with a gross vehicle weight of 12 tonnes or more. It will be expanded to heavy vehicles of 3.5 tonnes and above from 1 January 2027.

It is being introduced alongside multiple complementary measures:

• Rules on weights and dimensions for trucks on Danish roads are to be eased, enabling larger and heavier trucks to operate
• Improvements to rail freight in Denmark including a loans scheme for rail freight operators.

There will be a single rate geographically across all major roads in Denmark (it will not apply to local roads), with a higher rate for cities with low emission zones. The charge will automatically collect higher fees for the low emission zones.  There will be no VAT as it is legally a tax.

Exemptions

Only the following heavy vehicles will be exempt:

• National armed forces and emergency services vehicles;
• Vehicles adapted and used exclusively for fire and rescue;
• Police vehicles; and
• Vehicles belonging to the "road services" (believed to be maintenance/operations)

Implementation

Unlike almost all other implementation of heavy vehicle RUC anywhere, Denmark is taking a technology neutral approach to how data is measured and collected from heavy vehicles to enable collection of the charge.  Given the number of similar schemes in Europe, it called for accreditation to be a certified service provider, meaning that as long as a private commercial toll/RUC service provider could meet the performance requirements specified, it could be certified to collect the charge.  Denmark has received six application to do so after the deadline of 30 April (to enable initial operation) from the following firms:

• Brobizz (Denmark)
• SkyttelPASS A/S (Norway)
• Telepass S.p.A. (Italy)
• tolltickets GmbH (Germany)
• Toll4Europe GmbH (Germany)
• ØresundPAY (Sweden)

This does not necessarily mean all or any of these operators will be certified, but indicates Denmark has taken an open system approach in encouraging competition in delivering RUC services to heavy vehicles in the country. 

The project is being led by the Danish Road Directorate, but the contract for establishing it was granted to 

Sund & Bælt, a Danish government enterprise responsible for some major infrastructure projects such as the Øresund Crossing between Denmark and Sweden. 

The remuneration of EETS providers will be done under two categories:

• A fixed percentage of the revenue collected (1.5% for the calendar year 2025 and 2% for the subsequent year)
• A fee based on the number of active OBEs (On Board Equipment). An active OBE is an OBE that has been provided by the EETS Provider and installed in a vehicle registered with the EETS Provider, and for which circulation on the tolled road network has been detected at least once for the respective calendar month. (DKK60 per month (US$8.66) for the calendar year 2025, down to DKK15 per month the following year (US$2.17). 

Consider if a Class 5 above 32 tonne truck travelled 100,000km in a year (outside LEZs), it would generate DKK20,000 (US$2885) in gross revenue, so the EETS provider in the first year would obtain DKK300+DKK720=DKK1020 (US$147). So volumes of business matter (and it also encourages EETS providers to target the higher emitting vehicles that generate them more revenue).

Number of vehicles and kilometres driven

Number of trucks registered in Denmark in 2021

Initial installation will be for 35,500 locally registered vehicles, but the foreign vehicles are not included in this.  

Distance driven on Danish roads by heavy vehicles

The total distance to be driven by vehicles subject to the RUC is depicted above.

User experience

It is expected that regular users of the Danish road network will have a contract with an EETS provider (European Electronic Tolling Service) which will supply or use telematics installed in the vehicle.  The vehicle owner will pay the EETS provider, which will then pay the charges to the government.  Denmark is neutral about whether the EETS provider uses On Board Units already installed on trucks, new ones or uses the telematics system already built into some trucks.

Occasional users of the network (visiting trucks from foreign countries that infrequently enter Denmark will be able to buy a single trip ticket for a specific journey online, through the website of the "toll charger" (which is Sund & Bælt). 

Charges

The rates table applying from 1 January 2025 is seen below, it differentiates between three weight categories and five emissions categories with higher rates in low emission zones.

Denmark heavy vehicle RUC charge table

As can be seen rates range from DKK0.20 to DKK2.03 per kilometre (US$0.03 and US$0.29 per kilometre or US$0.048-US$0.47 per mile).  Note this replaces a rate structure of the Eurovignette below:

Eurovignette in DKK

This starts at DKK89 for one day on the network (US$12.85) to up to DK1755 for one year (US$2534), which depending on how much distance a truck travels on the network will determine if it is going to be paying more or less with the new kilometre-based RUC.

Impacts

The burden on Danish business is estimated to be DKK2.5b (US$370 million) offset by DKK1b (US$140m) due to the measures to enable larger trucks on the roads, so the net impact will be US$230m per annum by 2030.

It is estimated to reduce emissions by 0.4 million tonnes by 2030, but with 0.3 million tonnes coming from the road user charge and 0.1 million tonnes by allowing larger trucks on the network.

Summary leaflet here

Opposition

An organised opposition group "the Road Tax Committee" has been set up to oppose the proposal and it has been engaging in protests by blockading roads.  Some of the trucking industry is calling for a delay to implementation until 2030, largely so there are more lower and zero emission trucks available to purchase, so they would not face the highest charges.  The "Road Tax Committee" has since dissolved, but protests and opposition continue.

All of this indicates how important it is to get some support from the trucking industry before introducing charge that are, by and large, likely to charge many of them much more than they do now.

It seems challenging to introduce any form of road user charging without intending to ensure that net revenues will be used to, at least, ensure the road network is well maintained and managed, but there is little expression of this. The messaging is focused on fighting climate change, and nowhere else has this been seen by the trucking industry as a policy it can support. France tried this previously with the abortive Ecotaxe proposal (which I wrote about extensively over nine years ago).

In every other European jurisdiction that has managed to implement heavy vehicle RUC, the objective has been clear - the need to raise revenue from the vehicles that generate the most damage to the road network, including those from foreign jurisdictions. A secondary objective with some has been to encourage more environmentally friendly vehicles, but that is reflected in preferential rates for low emitting vehicles, it is not the primary objective. I would not be surprised if protests continue in Denmark until there is some recalibration of the objectives and policy. 

Hopefully Denmark can reach a point where it finds compromises that brings the trucking industry with it, whether it be about timing, the rate structure, the use of net revenues or any combination of the above (or even consolidating other taxes), so that it too can join the list of jurisdictions with RUC. Bear in mind that it will need to progress it to replace fuel tax revenue in the medium to long term as well.

Australia quietly runs the National Heavy Vehicle Charging Pilot - manual option

The Australian Commonwealth Government has been undertaking a programme of trialling distance and weight based road user charging (RUC) for heavy vehicles.  It ran a small-scale trial in 2019-2020 using existing telematics equipment, which was evaluated here.  Now the large-scale trial, manual technology component, was launched quietly by the Department of Infrastructure, Transport, Regional Development, Communications and the Arts (DITRDCA) in July 2022 and will run until the middle of the year.  It uses hubodometers, installed on powered units and trailers, with prepaid permits. It has parallels to New Zealand's long established Road User Charge system that has applied to heavy vehicles (over 3.5 tonnes) and light diesel vehicles. since 1978.  The graphic below depicts how the manual pilot works.

Australia's National Heavy Vehicle RUC pilot manual permit based system

Participants "buy" a permit (no real money is exchanged) for distance travelled, enabling participants to compare what they pay to stay up to date with distance permits, compared to what they pay in fuel tax and registration fees under the current system.

The video below includes segments from some of the trial participants.

This is not the only part of the trial, as a telematics based trial is due to start later this year, using a mix of new and existing on-board telematics systems on a range of trucks and buses.

The purpose of the trial is to gather data about various types of operators, obtain feedback on their experiences of the technological option and what operators think of paying by distance rather than tax on fuel and the high Australian registration fees for heavy vehicles.

The findings will be interesting and should inform decisions about whether to proceed with reforms to replace the fuel tax and registration based system (known as PAYGO or fuel based RUC), with a distance, weight and configuration based road user charge.

Disclosure: Milestone Pacific Pty Ltd (a subsidiary of CDM Smith) has been a technical advisor to DITRDCA on the National Heavy Vehicle Charging Pilot since 2019.  I have been leading that advice.

Cambridge (UK) announced plans for a congestion charge - and it is not going well

The Greater Cambridge Partnership has announced plans to introduce a congestion charge for the city of Cambridge. This has been mulled for some years, and of course the record of UK cities introducing congestion pricing, beyond London and Durham has been a failure - primarily because the public has been opposed, so it will be interesting to see how and whether this actually gets implemented.

The Greater Cambridge Partnership is a public sector body set up between five local authorities and the UK Government to implement a City Deal - which is a partnership for funding infrastructure and development for the city using a mix of local and central government tax income.

It would be fair to say that the proposal has been highly controversial, and with good reason. 

The congestion charge zone has been labelled the Sustainable Travel Zone. I'd question whether rebranding something achieves much, as the public's scepticism can only be enhanced when a euphemism is used to describe what it actually is - it's an area which will have road pricing. 

What's the objective?

The objective expressed first in the consultation document is to raise money to spend on subsidising a significant improvement in bus services. The second objective is to lower the level of traffic.  The implication is that there would be reductions in congestion, but it would be wrong to infer this is about improving travel times for those who drive.

Where's the money going?

The proposed improvement in bus services includes simpler fares, more routes and more services, with 10 minute headways, more evening services and more services to rural areas. It certainly looks like a huge uplift in service, but of course someone has to pay, and the Greater Cambridge Partnership wants motorists to. £50 million a year is proposed to be spent, and the congestion charge is not to be introduced until most of the bus service improvement have been implemented. 

A big uplift in cycling infrastructure and improvements to encourage more walking, including secure cycle parking.

What are the details?

Proposed Cambridge congestion charging zone