The role of public transport for feasibility and acceptability of congestion charging – The case of Stockholm

In the Stockholm Trial, congestion charges and the expansion of public transport services were closely linked together in marketing efforts, as well as in political decisions. In this paper, we analyse the role that public transport may have played in increasing acceptability and feasibility of the scheme. We study four aspects of the relationship between charging and public transport provision: (i) the initial modal share, (ii) contribution to modal shift (iii) compensation to losers (iv) revenue hypothecation. Our analyses, based on a combination of primary and secondary data, support the hypothesis that public transport contributed to the successful implementation of congestion charging in Stockholm through all those four mechanisms.     

The development of public attitudes towards the Stockholm congestion trial

A full-scale congestion charging trial was carried out in Stockholm the first months of 2006. Almost half of respondents in a county-wide survey stated that they changed their attitudes towards congestion charges during the trial. Most of them became more positive.An analysis of media shows that the attitudinal change in media towards the trial coincides with the attitudinal change of the public. There was no dramatic change in the proportion of articles expressing a negative view. Instead, the result indicates that the increase in positive views was driven by a shift from neutral to positive articles during the trial.In order to ascertain why the public attitudes swung, we have analysed the anticipated and perceived effects of the trial. Generally, the analysis seems to indicate that improved understanding of the type and magnitude of concrete effects was not a main driving force behind the attitudinal change. Instead, it seems that the public attitude changed because personal experience gave a new understanding of the implications of the charges for the personal well-being. This would imply that trials, generally, may be a more useful tool than information in the process of implementing ‘difficult’ policy measures, such as congestion charges.     

The Gothenburg congestion charge. Effects,design and politics

This paper summarizes the traffic effects of the Gothenburg congestion charges introduced in 2013. The system is similar to the system introduced in Stockholm in 2006; both are designed as time-of-day dependent cordon pricing systems. We find that many effects and adaptation strategies are similar to those found in Stockholm, indicating a high transferability between smaller and larger cities with substantial differences in public transport use. However, there are also important differences regarding some of the effects, the accuracy of the model forecasts and public support arising from different topologies, public transport use, congestion levels and main objectives communicated to the public. Finally, the Gothenburg case suggests that whether congestion charges are introduced or not depends on the support among the political parties, and that this is determined primarily by the prevailing institutional setting and power over revenues, and to a lower extent by the public support, and benefits from congestion reduction.     

Overcoming public aversion to congestion pricing

We have completed a survey of Southern California residents designed to examine whether the details of policy design can make congestion pricing more attractive to the motoring public. A congestion fee proposal is often regarded as simply a tax increase; also, especially in the US, motorists apparently regard the use of congestion fees as coercive, in that they often have few if any practical alternatives to paying the fee. Unlike most opinion surveys on congestion pricing, our survey was quite explicit about the fate of the collected revenues. For example, we presented respondents with policies that returned a substantial portion of the revenues to the public, either in the form of cash (through reductions in sales taxes and vehicle registration fees or through income tax credits) or in the form of coupons to be used for vehicle emissions equipment repair, transit, and the like. In addition, we examined whether the typically intense opposition to congestion pricing if applied only to a part of a roadway, leaving the motorist free to choose between free lanes and toll lanes. We find that a promise to offset the imposition of congestion fees by other taxes can result in a 7% point increase in support for congestion pricing policies, and the restriction of congestion pricing to a single lane on a freeway attracts from 9% to 17% points of additional support.     

Building legitimacy for risky policies: The cost of avoiding conflict in Stockholm

The controversial nature of urban congestion charging policies makes them politically risky. Urban planners, policy makers and politicians are forced to consider how they can legitimately introduce a policy that the public may not want. Implementation in London, and failure in Edinburgh, raise questions about whether they should seek full citizen support, or work strategically towards implementation in the face of public opposition.This paper reports on an investigation of the Stockholm congestion charging trial (SCCT). It analyses the strategy developed by the city authorities to create legitimacy for the implementation of the SCCT. The SCCT is examined in two steps, firstly how the ‘trial + referendum’ approach was successful in securing public acceptance, and secondly how key aspects of the design of the trial and the subsequent referendum were adjusted in response to emerging risks, demonstrating the pragmatic approach of the city leaders managing the policy process. The study suggests that the city leaders chose a clearly pragmatic approach, grounded in compromise, yet subtly designed to avoid openly confronting the status quo. The strategy was continuously adapted and adjusted, in the face of emerging risks, and clearly served to create consensus while avoiding difficult questions of urban mobility.     

Public perceptions of toll roads: A survey of the Texas perspective

Like many U.S. states, Texas is experiencing shortfalls in transportation funding, along with growing needs for system improvements. Accordingly, the Texas Department of Transportation (TxDOT) is turning to tolling to bridge the funding gap. To assist planning efforts and effectively direct public information, a telephone survey of 2111 Texans was undertaken statewide to gauge public opinion on tolling issues.Some issues yielded a definite consensus among survey respondents. Over 70% agreed on attending to existing roads first, keeping existing roads toll-free, reducing tolls after construction, using revenues within the same region, charging higher tolls for trucks, not imposing SOV tolls, and maintaining the same toll rates during rush-hours. Some opinions varied by region. Austinites were more likely to support additional transportation spending, while residents of the Lower Rio Grande Valley were less supportive of raising the gas tax and of public/private partnerships. Opinions also varied with survey design. In eight places in the survey, optional text was provided or question order was modified to intentionally influence response. For two questions, support for tolling was decreased when information on personal transportation costs and higher gas tax rates in other states was offered. Ordered probit and binomial and multinomial logit models were estimated to assess the impact of demographic and travel characteristics on respondent opinions, and results for key issues are presented here. Opinions across demographic groups also were examined. The survey was successful at measuring opinions on several key tolling issues and should prove a useful tool for transportation planners and policymakers.     

Great Britain adults’ opinions on cycling: Implications for policy

In its neglect of cycling, the transport policy history of Great Britain is typical of many car-dependent societies. Policy inertia with respect to sustainable travel may be driven by the assumptions that, firstly, most households have access to the use of a car and are keen to preserve the mobility advantages the current system offers them, and secondly that environmental and health considerations should be subjugated to economic priorities. Thus, in spite of warm words about cycling, pro-car policies tend to dominate.Set against this policy backdrop, and taking the stance that public opinion can influence policy change, this paper reports the results of two large scale surveys of opinions regarding the practice of cycling and its role within society, carried out amongst samples of adults representative of Great Britain, in 2010 and 2013. Results indicated broadly positive opinions relating to cycling as part of society, albeit with these measures dropping slightly between 2010 and 2013. Opinions of cycling were found to be significantly linked to voting intention with, broadly speaking, a gradient of decreasing positivity when moving from the political left to right. These results imply a possible link of ‘surface’ opinions of cycling being influenced by underlying ‘deep-seated’ beliefs and values. These results are discussed in terms of policy options for pro-cycling groups wishing to influence the debate. Options include decoupling cycling from underlying belief systems and presenting simply as a form of everyday transport; promoting cycling as a solution to multi-social issues across health, the environment and economic considerations such as lower congestion; the pros and cons of de-marketing car usage; and finally, changing underlying belief systems. It is concluded that pro-cycling advocates may be pleased with the broad support of cycling’s contribution to society, but they may need to seek alliances with other environmental or health groups in order to turn these good intentions into genuine policy change.     

Special issue: Importance of public transport

The transport demand in most major cities around the world can only be met with a high‐quality public transport system. The requirements on bus, rail, underground and tram systems are manifold with reliability and efficiency as the key factors. The service operating hours and the size of the network are often extended in order to serve the needs better. Further, most metropolitan areas are trying to provide more incentives for citizens to leave the car at home and use the local transit systems instead. The reasons are well known. Not only does a public transport system only make economical sense if it is well used, but most urban areas with a high car‐dependency face at least three major problems; safety, congestion, and pollution (noise and air pollution, land separation, etc.). It is generally recognised that to decrease car usage and to increase public transport usage a stick & carrot approach is needed. The London congestion‐charging scheme is an example since all revenues collected by the scheme are put into the improvement of bus and underground services.     

Equity effects of congestion pricing: Quantitative methodology and a case study for Stockholm

It is widely recognised that congestion pricing could be an effective measure to solve environmental and congestion problems in urban areas—a reform that normally also would generate a net welfare surplus. Despite this the implementation of congestion pricing has been very slow. One reason for a low public and political acceptance could be that equity impacts have not been given enough concern. In studies of distributional impacts of congestion pricing it has often been claimed that the reform is regressive rather than progressive even if there are studies claiming the opposite. We develop a method for detailed, quantitative assessment of equity effects of road pricing and apply it to a real-world example, namely a proposed congestion-charging scheme for Stockholm. The method simultaneously takes into account differences in travel behaviour, in preferences (such as values of time) and in supply of travel possibilities (car ownership, public transport level-of-service etc.). We conclude that the two most important factors for the net impact of congestion pricing are the initial travel patterns and how revenues are used. Differences in these respects dwarf differences in other factors such as values of time. This is accentuated by the fact that the total collected charges are more than three times as large as the net benefits. With respect to different groups, we find that men, high-income groups and residents in the central parts of the city will be affected the most. If revenues are used for improving public transport, this will benefit women and low-income groups the most. If revenues are used for tax cuts, the net benefits will be about equal for men and women on the average, while it naturally will benefit high-income groups. Given that it is likely that the revenues will be used to some extent to improve the public transport system, we conclude that the proposed congestion-charging scheme for Stockholm is progressive rather than regressive.     

The benefits of improving public transport: a myth or reality?

As part of a research project completed some four years ago at Imperial College, London, a number of case studies were undertaken to examine the impacts that major improvements to the public transport system have on parallel road traffic. The three studies of major improvements to the public transport systems in three U.K. and German cities were: the Victoria Line in London; the extension of the U‐Bahn system in West Berlin (at the time of the study); and the S‐Bahn extension in Stuttgart. Each scheme is reviewed, with particular reference to the degree in which they have relieved congestion on the roads in the same corridor. This was examined simply to see whether or not public transport improvements are the only answer to traffic congestion, as is sometimes suggested. In the event, every scheme was a unique example in itself. The different conditions in each situation are presented and the actual impacts of the schemes assessed, based on the available information. The findings were rather different from the expectations. Only marginal relief from road traffic was recorded, with a substantial shift from buses to the improved rapid rail system. In the case of Stuttgart, for example, traffic growth on parallel roads was actually higher than the average growth on all city roads, though for other reasons.     

Locating charging infrastructure for electric buses in Stockholm

Charging infrastructure requirements are being largely debated in the context of urban energy planning for transport electrification. As electric vehicles are gaining momentum, the issue of locating and securing the availability, efficiency and effectiveness of charging infrastructure becomes a complex question that needs to be addressed. This paper presents the structure and application of a model developed for optimizing the distribution of charging infrastructure for electric buses in the urban context, and tests the model for the bus network of Stockholm. The major public bus transport hubs connecting to the train and subway system show the highest concentration of locations chosen by the model for charging station installation. The costs estimated are within an expected range when comparing to the annual bus public transport costs in Stockholm. The model could be adapted for various urban contexts to promptly assist in the transition to fossil-free bus transport. The total costs for the operation of a partially electrified bus system in both optimization cases considered (cost and energy) differ only marginally from the costs for a 100% biodiesel system. This indicates that lower fuel costs for electric buses can balance the high investment costs incurred in building charging infrastructure, while achieving a reduction of up to 51% in emissions and up to 34% in energy use in the bus fleet.     

Stockholm congestion charging: an assessment with METROPOLIS and SILVESTER

This paper reviews and compares the performance of two dynamic transportation models – METROPOLIS and SILVESTER – which are used to predict the impacts of congestion charging for Stockholm. Both are mesoscopic dynamic models treating accumulation and dissipation of traffic queues, route choice, modal split and departure time choice. The models are calibrated independently for the baseline situation without charges and applied to forecast the effects of congestion charging. The results obtained from the two models are mutually compared and validated against the actual outcome of the Stockholm congestion charging scheme. Both models successfully predict the outcomes of the congestion charging trial at both aggregate and disaggregate levels. Results of welfare analysis, however, differ substantially due to differences in model specification.     

Multimodal travel groups and attitudes: A latent class cluster analysis of Dutch travelers

For developing sustainable travel policies, it may be helpful to identify multimodal travelers, that is, travelers who make use of more than one mode of transport within a given period of time. Of special interest is identifying car drivers who also use public transport and/or bicycle, as this group is more likely to respond to policies that stimulate the use of those modes. It is suggested in the literature that this group may have less biased perceptions and different attitudes towards those modes. This supposition is examined in this paper by conducting a latent class cluster analysis, which identifies (multi)modal travel groups based on the self-reported frequency of mode use. Simultaneously, a membership function is estimated to predict the probability of belonging to each of the five identified (multi)modal travel groups, as a function of attitudinal variables in addition to structural variables. The results indicate that the (near) solo car drivers indeed have more negative attitudes towards public transport and bicycle, while frequent car drivers who also use public transport have less negative public transport attitudes. Although the results suggest that in four of the five identified travel groups, attitudes are congruent with travel mode use, this is not the case for the group who uses public transport most often. This group has relatively favorable car attitudes, and given that many young, low-income travelers belong to this group, it may be expected that at least part of this group will start using car more often once they can afford it. Based on the results, challenges for sustainable policies are formulated for each of the identified (multi)modal travel groups.     

Congestion and variable user charging as an effective travel demand management instrument

Interest at the political level in congestion charging is gaining pace as cities struggle with ways to reduce the effects of growing traffic congestion on the liveability of cities. Despite a long history of promotion of a wide array of travel demand management (TDM) initiatives, very few have had a noticeable impact on the levels of traffic on the road networks of metropolitan areas. TDM success in this context has almost become ‘band-aid’ in the absence of a pricing strategy that not only promotes efficient use of the system but also hypothecates revenues to support essential complementary infrastructure and services such as public transport. This paper takes a look at the stream of pricing consciousness that is surfacing around the world. Although very few jurisdictions have implemented congestion charging, or any form of efficient variable car and truck user charging, the winds of change are well in place. The adage “it is not a matter of if but of when” seems to be the prevailing view. Our overview of global trends in positioning the debate and hopefully follow-through commitment to implementation provides a backdrop to papers submitted for this special issue on travel demand management. The predominance of papers on pricing is indicative of the priority that must be given to efficient charging and revenue disbursement.     

Users’ perceptions and willingness to pay in interurban toll roads: identifying differences across regions from a nationwide survey in Spain

Users’ acceptability is considered one of the key drivers for the successful implementation of transport policy measures. This is especially crucial in the case of toll roads since they are financed through drivers’ contributions. Previous literature in this field has mainly focused on measuring users’ attitudes towards urban congestion pricing strategies. However limited research has been developed concerning interurban toll roads. Previous research shows that socioeconomic variables are not conclusive to explain users’ perceptions towards tolls. By contrast, other drivers such as regional differences seem to play a more important role, especially when charging conditions within the same nation greatly vary across regions. This paper analyzes regional differences in users’ attitudes within an asymmetrical distribution of the toll road network across regions. Based on a nationwide survey conducted to road users in interurban toll roads in Spain, we develop both a binomial logit and a censored regression (tobit) model to explore drivers’ perceptions and willingness to pay. The research concludes that users from regions with a more extensive tolled network generally show a more negative attitude towards charges, but not necessarily a lower willingness to pay. The paper also points out that an asymmetrical distribution of toll roads across regions may result in negative perceptions among those users perceiving to be unfairly treated when compared to citizens in other regions.     

A dynamic stochastic model for evaluating congestion and crowding effects in transit systems

One of the most common motivations for public transport investments is to reduce congestion and increase capacity. Public transport congestion leads to crowding discomfort, denied boardings and lower service reliability. However, transit assignment models and appraisal methodologies usually do not account for the dynamics of public transport congestion and crowding and thus potentially underestimate the related benefits.This study develops a method to capture the benefits of increased capacity by using a dynamic and stochastic transit assignment model. Using an agent-based public transport simulation model, we dynamically model the evolution of network reliability and on-board crowding. The model is embedded in a comprehensive framework for project appraisal.A case study of a metro extension that partially replaces an overloaded bus network in Stockholm demonstrates that congestion effects may account for a substantial share of the expected benefits. A cost-benefit analysis based on a conventional static model will miss more than a third of the benefits. This suggests that failure to represent dynamic congestion effects may substantially underestimate the benefits of projects, especially if they are primarily intended to increase capacity rather than to reduce travel times.     

Traffic and emissions impact of congestion charging in the central Beijing urban area: A simulation analysis

Congestion charging is being considered as a potential measure to address the issue of substantially increased traffic congestion and vehicle emissions in Beijing. This study assessed the impact of congestion charging on traffic and emissions in Beijing using macroscopic traffic simulation and vehicle emissions calculation. Multiple testing scenarios were developed with assumptions in different charging zone sizes, public transit service levels and charging methods. Our analysis results showed that congestion charging in Beijing may increase public transit use by approximately 13%, potentially reduce CO and HC emissions by 60–70%, and reduce NOx emissions by 35–45% within the charging zone. However, congestion charging may also result in increased travel activities and emissions outside of the charging zone and a slight increase in emissions for the entire urban area. The size of charging zone, charging method, and charging rate are key factors that directly influence the impact of congestion charging; improved public transit service needs to be considered as a complementary approach with congestion charging. This study is used by Beijing Transportation Environment and Energy Center (BTEC) as reference to support the development of Beijing’s congestion charging policy and regulation.     

Integrating e-scooters in urban transportation: Problems,policies, and the prospect of system change

Throughout the world, cities seek to ease transport-related problems of congestion, air pollution, noise, and traffic injuries. Urban transport planners have welcomed e-scooters as an alternative to motorized individual transport, specifically the car. The public has met e-scooters with both enthusiasm and scepticism, as cities have struggled with unforeseen outcomes such as forms of irresponsible riding, cluttering, or vandalism. This paper investigates the challenges associated with the introduction of e-scooters in ten major cities, based on a content analysis of local media reports. News items (n = 173) were identified through Internet searches and include print media, TV and radio websites. Concerns prior to and after the introduction of e-scooters are assessed, analysed, and interpreted in the context of new policies for this transport mode. Results suggest that many cities have moved through trial and error stages in their search for appropriate legislation. The paper concludes that it is prudent for urban planners to introduce policies regarding maximum speeds, mandatory use of bicycle infrastructure, and dedicated parking, as well as to limit the number of licensed operators. Where negative public opinion can be averted, e-scooters stand a chance to become a disruptive niche innovation with the potential to transform urban transport systems.     

Car ownership and public transport use: Revisiting the interaction

At the beginning of the 1980s, it seemed that a consensus was emerging among researchers that public transport service levels, fares or quality had a small but possibly important effect on car ownership, and that this should be taken into account for those purposes where car ownership forecasts are used for developing policy on public transport or roads. Somehow, the findings faded away, and had little effect on policy thinking or on analytical techniques. The results of six surveys carried out in South Yorkshire over the period 1972 to 1991, during which there were extreme changes in public transport policy, tend to support a prima facie case for reopening the question. At the household level, car ownership rates are shown to be more volatile than is often assumed, especially in multiple car households. This volatility provides a context within which the quality of public transport provision appears to influence both the level of car ownership and the relationship between changes in the level of car ownership and changes in public transport use.     

Learning from Los Angeles: transport,urban form,and air quality

Los Angeles is well known around the world as an automobile-oriented low density community, yet recent transportation policies have emphasized greater capital investment in rail transportation than in highways, and recent policies have attempted to discourage automobile usage through transportation demand management. While these policies have accomplished small shifts toward public transport and somewhat lower dependence upon singly occupied automobilies for work commuting, the financial costs of these policy changes has been very large in relation to their benefits. Proper pricing of transportation alternatives, more creative use of new and emerging transportation technologies, and the provision of many more opportunities for simpler private sector transport services, would all appear to be more promising as cost-effective approaches to coping with congestion in Los Angeles than the current regional transportation policies.