This should be the last Government Policy Statement on Land Transport Funding

Consultation has closed on the first draft Government Policy Statement (GPS) on land transport for the National led government issued by new Transport Minister, the Hon. Simeon Brown. It represents a significant change from the draft GPS published by the previous (Labour) government (PDF). 

It has four strategic priorities, compared to the draft produced by the previous government, which had six. 

The new draft GPS strategic priorities are:

• Economic growth and productivity;

• Increased maintenance and resilience;

• Safety; and 

• Value for money.

The previous draft had the following priorities:

• Maintaining and operating the system;

• Increasing resilience;

• Reducing emissions;

• Safety;

• Sustainable urban and regional development; and 

• Integrated freight system.

Three of these priorities are similar to the new one, but others are gone, with a focus on economic growth, productivity and value for money, over reducing emissions, and sustainable development.

Notable most of all is the return of the Roads of National Significance (RoNS) programme seen before with the Key Government, albeit some were also proposed by the Hipkins Government before the election under the title “Strategic Investment Programme”, including projects such as “Warkworth to Whangarei”, “Cambridge to Piarere”, “Tauranga to Tauriko”, “second Mt Victoria Tunnel” (albeit a different one to the one likely under RoNS) and “Ashburton Bridge”. Little of the critical commentary of the draft GPS has noted this point.

The new GPS has had support from some quarters, particularly in business and the road transport sector. National Road Carriers Group said “This policy is geared towards getting the basics right” and Business Canterbury said it is “a welcome first step in recognising roading infrastructure as being key to the performance of businesses”. 

However, it has seen vehement criticism from supporters of the previous government.  The Greater Auckland blog claimed it is the “most ideological, unbalanced and petty transport policy the country has seen” and Green transport spokesperson Julie Anne Genter said “Simeon Brown is obsessed with forcing people into their cars”. 

Of course, it is rather strange to use the term “ideological” as a pejorative when the GPS process is, by its very nature, ideological. Politics is ideological, and of course the values, priorities and objectives of the Green Party on transport policy are grounded in their own ideology, which is different from the ACT Party and National. 

The 2021 GPS, approved by then Transport Minister, Hon. Michael Wood, included an indicator in its targets of reducing VKT travelled, to achieve “transforming to a low carbon transport system”.  It is arguably an ideological choice that the best means to reduce emissions is to reduce total driving, rather than reduce consumption of fossil fuels (after all, electric vehicles powered by renewable energy emit no emissions).  “Road to Zero” is arguably ideological, by prioritising a public policy goal of zero road deaths, rather than zero deaths from accidents at home, or zero deaths due to medical misadventure, or zero deaths of children from domestic violence.  

The point is not to say “Road to Zero” is not a laudable goal, and a case can be made for it (although the cost to prevent the last road death is likely to far outstrip the cost of saving deaths in other sectors). Rather, it is naïve to think that a land transport funding system that is set up to implement political ideology and politically determined objectives is not ideological. It is ideological as to the extent to which money collected from motor vehicles is directed towards users of other transport modes. 

There was a conscious decision by the Clark Government, in its last term, to return NZ to a politically-led land transport funding system (after politics had largely been stripped out of it in 1996, having been significantly curtailed in 1989), and since then the Key and Ardern/Hipkins Governments maintained that system.

It is the nature of politics and the nature of a land transport funding system that is designed to be a three-yearly political football. That is fundamentally its weakness and is a key cause of some of the ills seen today in that funding system.

So I'm not going to review the draft GPS. It has some strengths (productivity is important), and there are some questions to be asked about parts of it (e.g., there are merits in providing appropriate capacity for walking and cycling as part of major highway projects on efficiency grounds, and the current wording leaves some ambiguity as to that), but it's not that important. What's really important is having a funding framework that isn't dependent on political/bureaucratic choices to ensure one of the country's most important utilities is well maintained and operating efficiently.

What’s wrong?

There is a Ph.D thesis that can be written as to the weaknesses of the current land transport funding system, but here are some of them:

• Poor incentives for cost-efficiencies, as savings in maintenance and operations are not seen as translating into additional funds for construction and upgrades, and politically driven projects are seen by contractors as “guaranteed” of funding regardless of price;

• Difficulties in securing long-term pipelines of construction projects, especially by geography and type of construction (e.g. bridges, tunnelling) as capital funding is tied to three-year NLTPs, based mostly on cashflow, ad-hoc Crown funding and political imperatives (which are fickle – see the Melling Interchange which was under development for many years, then deferred in 2019, then funded with Crown funding in 2020). This inflates their costs;

• Territorial authorities are limited in their capacity to finance and fund capital works on local roads, due to competing demands and the need to raise, on average 40-50% of the cost of such projects from rates (or borrowing supported by rates)

• Mixed and non-transparent relationship between rates charged by local government and the cost or benefits of local road or public transport funding supplied by such funding;

• Low use of debt to finance new capex, to spread the cost of major projects across future users, than cashflow from road users unable to use projects still under construction. This limits capacity for new capex, but also is arguably unfair from an intergenerational equity perspective, and means the opportunity cost of capital in new projects is not fully reflected in the cost of construction; 

• Ad-hoc, inconsistent and non-transparent measurement of performance and accountability to road users by road controlling authorities and largely dependent on political imperatives over issues as they get traction in media;

• Little link between the pricing of road use (through RUC/FED/MVR) and the delivery of road infrastructure, and next to no incentives to use more direct pricing either to fund new capital or to enable better use of the network;

• Little reflection of “willingness to pay” as a criteria for funding of activities;

• Ad-hoc and inconsistent co-ordination between road controlling authorities;

• Little input from road users on preferences regarding the construction and operations of roads, including trade-offs around maintenance, renewals, capacity, speeds, safety;

• Inefficiencies from having over 60 road controlling authorities contracting independently;

• Use of economic evaluation to rank and moderate spending is heavily compromised by political imperatives to make projects “stack up” (whether road, rail or public transport) leading to highly inconsistent benefit/cost appraisals;

• Poor incentives to commercialise the use of transport corridor land, whether roads or railway stations;

• Kiwirail’s main source of infrastructure funding (for maintaining most of its network outside Auckland and Wellington) is not its users but the state highway manager/land transport funder/regulator following decisions by Ministers;

• Lack of transparency and subsequent justification around cross-subsidies by users, modes or geography; and

• Limited and inconsistent post-project evaluation of the impacts of projects on reducing congestion, improving safety, achieving modal shift or reducing demand for emissions. 

What should the land transport funding system be doing?

This speech by Hon. Chris Bishop, Minister for Infrastructure, at the Infrastructure Funding & Financing Conference on 26 March in Wellington gives some good indications as to what the system should do.

In his view, there are five things that are needed to be done to close the infrastructure deficit:

1. First, we have to do a better job of maintaining existing assets. That means funding both the up-front cost and ongoing maintenance of infrastructure over the life of the asset.

2. Second, we need a credible pipeline of infrastructure projects to attract the capital and talent we need to get building.

3. Third, we need to reduce barriers that are holding back infrastructure delivery and growth. RMA reforms are already underway to get nationally and regionally significant projects fast-tracked.

4. Fourth, we must improve value for money. Reducing the cost for each metre roads or rail will help close the deficit, improve resilience, and lift productivity.

5. Fifth and finally we need new ways to fund and finance infrastructure. Investment must be financially sustainable, which means each asset can wash its own face over its economic life, directly or indirectly, rather than depend on generous cross-subsidies.

Setting aside the third point (which is about planning law), the GPS process has proven to be far from satisfactory in addressing the first, second, fourth and fifth points. Indeed, this shouldn’t be a surprise, because a system that almost entirely ignores what users want, which determines supply based predominantly on political determined priorities and which is dependent on cashflow for most capital spending, not debt, is not going to be well set up to maintain and develop infrastructure on a sustainable or efficient basis. In recent years the main way the land transport funding framework has “found” new ways to fund infrastructure, is having the Minister of Finance approve new Crown funded “funds” for specific groups of projects. The previous Government’s draft GPS listed 21 separate sources of Crown funding for its NLTP, albeit it was looking to cull that down to 14 for 2025/2026 and 10 for the following year. Even politically driven NLTF funding has seen the rise of direct politically determined Crown funding, but done none in a co-ordinated, strategic way, but in ad-hoc reaction to events. That is not a sustainable basis to operate an entire economic sector (which is what road infrastructure is).

This is why the Government should take the opportunity to reform the land transport funding and governance system. For failing to do so will risk a turnaround in priorities again, whether after a change in Minister or more importantly, a change in Government, adds cost to road controlling authorities, public transport authorities, contractors, but most importantly road users and taxpayers, as unnecessary costs are imposed on the system due to uncertainty and ad-hoc decision making, and a lack of clear accountability for delivery of the levels of service that users should expect.

What about other networks?

Electricity, gas, telecommunications, airport and port infrastructure get maintained without the Ministers of Energy, Communications or Transport proclaiming objectives for the funds those sectors raise from their users. Indeed, the idea that somehow the money collected from your electricity, gas, mobile phone or broadband bills should be distributed by what a Minister decides, maybe or maybe not following official advice, smacks of another age or quite simply, a planned economy. Some (such as natural monopolies like Transpower, local lines companies and Chorus) are subject to regulatory oversight, others (such as ports and airports) are more driven by market imperatives. Users with regulatory oversight, drive maintenance in infrastructure sectors almost entirely funded by fees charged to users.

Capital spending is long-term, because the infrastructure suppliers develop long-term plans, based on forecast demand, looking at depreciation profiles of major assets, assessing risk around resilience, and using debt for renewals, supported by long term funding from user fees. Again, it is not up to the whims of Ministers, it is not capital spending by cashflow, and projects don’t appear and disappear because of perceived political benefit, or ideological bias in favour or against certain major projects. There is regulatory oversight, for example when airport companies seek to develop terminals and expect their customers (airlines) to pay for it. 

Value for money is delivered by having infrastructure providers that are required to operate commercially, generate a return from capital and pay dividends/reinvest net profits in their networks. 

They obtain funding and financing from user fees almost exclusively.  This sets up a tight, direct relationship between users and providers, and means users drive what is built, and how the utilities operate. There is some of this now in the land transport sector, but the dominant relationship is for service providers to respond to bureaucratic and political imperatives, not user imperatives. Far too often user imperatives get filtered through politicians, which is neither efficient nor fair, especially on users too busy or not sufficiently well organised or connected to get heard.

So what should happen?

Land transport funding needs to be reformed, and the basics that everyone seems to say they agree with, should be placed outside the political cycle, as they are for so much of the infrastructure sector. The good news is that land transport is better managed and funded than water, overall, because there is some direct user charging across the country, which provides a steady source of revenue. There are some standards applied and some disciplines on spending. 

So how should the objectives set out by Bishop be implemented?

Here are a few headlines:

• Directly hypothecate most maintenance and renewal funding to road controlling authorities, under specific conditions.  The first call on fees collected from road users should always be to maintain and renew the current network. This should be outside politics.

• Enable road controlling authorities to borrow for major projects using forecast cashflow from RUC/FED, and possible toll revenue (and where relevant, revenue from property owners that capture value from specific projects). 

• Require road controlling authorities to develop corridor and capital investment plans over ten years specifically to meet the needs of their users, informed by what users want. Such plans should reflect forecast revenues, with plans beyond that timeframe included so that no-regrets preparatory measures (purchase of land, projects that are complementary) can be undertaken.

• Move state highway management into a separate state-owned enterprise, out of NZTA, to manage and operate the network as a professional organisation, which also manages standards for the entire road network, and is expected to operate as a business for its customers.

• Return revenue from track user charges to Kiwirail Infrastructure directly (take it out of the NLTP), and more transparently separate infrastructure and operating businesses. Subject track user charge rate setting to economic regulatory oversight, and render transparent any Crown subsidies to the maintenance, renewal and upgrades to the Kiwirail network. End NLTP funding of Kiwirail outside that needed for PT infrastructure projects.

• Review the funding and structures around local road controlling authorities to make them more transparent, more accountable to road users and property owners dependent on them for access, and to enable them to borrow against revenue streams, and to encourage efficient consolidation of local road controlling authorities for economies of scale and capacity to undertake large scale projects. The role of rates (a largely non-transparent and blunt instrument) should be reviewed.

• Concentrate NLTP funding on public transport and active modes to operations and capital that improve the productivity of the land transport network and significantly reduce negative externalities. Funding of public transport for primarily social or public health purposes should come from Crown funding, rather than from other users of the network.

• Review the funding and structures around public transport regulation and contracting to make the more accountable to users and property owners that benefit from the provision of such services.  Review the ownership models for major public transport infrastructure, in particular the incentives for development around corridors and stations.

What would be the Minister’s role?

Under a future funding framework the Minister would still have a role around the setting of fees for nationally collected road user fees, such as RUC/FED/MVR and in approving tolling (and congestion pricing) schemes.  The Minister would also scrutinise the performance of Kiwirail (along with the Finance Minister, but the Transport Minister would care about outcomes for users, not just rate of return on capital), the State Highway Manager and the remaining functions of NZTA around regulation and funding.  The Minister could also seek and obtain Cabinet funding for major projects beyond the capacity of the NLTF to fund (and also for Kiwirail), so that there would still be scope to go beyond that which is collected from road users, but the Minister could not raid the NLTF for special projects (whether a motorway or a rail project),or take away maintenance funding. Indeed the NLTF would be largely ring-fenced as significant parts of it would be dedicated to ten-year maintenance and capital programmes, with much capital borrowed and needing servicing over future years.

Further steps in reform, especially if all vehicles are on RUC, and some RUC is collected electronically with reference to location, then road controlling authorities could set their own regulated rates for using the roads and be guaranteed that funding with appropriate regulatory oversight.  Never again would maintenance and renewals be underfunded, and capital spending would be within the capacity of road users’ willingness to pay, topped up by political decisions to add Crown funding on top of that. A government heavily interested in road spending could choose either to enable more increases in RUC or add Crown funding for specific projects. A government uninterested in road spending could not cut spending below what was needed for maintenance, renewals, a steady level of spending on small to medium sized projects, and already committed large projects funded from user fees (but it could cut Crown funding completely). This would give a lot of certainty to the sector, with flexibility only existing where additional funding competes with other sectors.  

Furthermore, it would mean that, like most of the economy, the provision of a key service (roads) would be linked to the demand for it by users and their willingness to pay. Those that maintain and operate them would be incentivised to do so efficiently, and in a way that is optimal to their customers, and what people pay for them reflects the cost of providing them, and just perhaps it would see the erosion of a culture that means that, by and large, the sector looks after itself.  It would be nice for the system to not be subject to perpetual culture wars by those who think the system should exist to reflect not what people want, but what some planners and politicians think is what they should have.

Crucial next steps for Auckland congestion pricing

I usually write about road pricing in my Road Pricing Blog, but I have placed this article here primarily because it is a wider transport policy issue around governance, and isn't just about road pricing in Auckland.

The announcement of the removal of the Auckland Regional Fuel Tax (ARFT) by the (NZ) Minister of Transport, Hon. Simeon Brown is implementation of an election promise, and is not a surprise.  The big question is what comes next, and talk of congestion pricing, given it is also part of the National/ACT party coalition agreement, is clearly something that needs to be progressed this year.  However, there are some big questions that need to be addressed.

Don’t miss the regional fuel tax

The ARFT was introduced, with the intention that it operate for a ten-year period in 2018 to enable Auckland Council to fund transport projects in the region. It had been criticised at the time for its distributional impacts, with a study by Sapere Research Group in 2018 (PDF) regarding both the ARFT and national increases in Fuel Excise Duty (FED) concluding that they will:

• give rise to significant variation across households in terms of impacts;

• be regressive in nature- (i.e. disproportionately impact on lower-income households);

• likely impact inequitably on Māori households, especially in the south of Auckland;

• produce even more inequitable impacts when fuel efficiency of vehicles is considered.

In short, the ARFT unfairly burdens those least able to afford it, not least because they are least likely to be able to afford newer vehicles (such as EVs or hybrid vehicles) that are more fuel efficient, less likely to be able to afford to live near the public transport that connects them to their employment and more likely to work shifts or at times when alternatives to driving are less feasible or attractive. 

Removal of the ARFT is notable as it is rare, anywhere in the world, to see a Government willing a scrap a tax on road use. It raises the issue as to how to pay for significant improvements to Auckland’s transport network beyond the capacity of the National Land Transport Fund (NLTF) which has its own issues of funding capacity to meet government objectives (highlighted in the NZTA Briefing to the Incoming Minister) and the political willingness of Auckland Council to increase rates.

When the previous Government held a Select Committee Inquiry into Congestion Pricing, many suggested that congestion pricing in Auckland could be used to replace the ARFT.  

Congestion pricing can’t replace the ARFT revenue in its entirety for some time

Congestion pricing clearly could generate some net revenues for transport in Auckland, but it is important to emphasise that while it can do that, for it to be effective in managing congestion, the net revenues need to be seen as secondary and not the primary objective. Designing congestion pricing to reduce congestion will mean it is designed to deliver net benefits to transport sector users, regardless of revenues generated and how they are spent.  This is how it has worked in Singapore and Stockholm, but it is not what has happened in London (certainly in the past decade or so) nor Gothenburg.

If it is to be assumed that the Government wants congestion pricing to be about reducing congestion and improving trip reliability in Auckland, it needs to be designed and implemented with that as the primary focus. If Auckland Council and Auckland Transport regard congestion pricing primarily as a tool to make up the revenue lost from not having the ARFT, it is at best going to be sub-optimal in addressing congestion at the times and locations where it is introduced, and at worst will deliver insufficient travel time savings for motorists resulting in a backlash against the concept, killing off congestion pricing in Auckland (and NZ) for many years to come.

The Congestion Question report, albeit now slightly dated (as the analysis was undertaken before the pandemic), indicated the likely net revenues from the short-listed congestion pricing options.  The most promising option was the “Combination” which would see introduction of a city-centre cordon scheme, along with pricing the strategic road network (motorways and parallel main arterials).  

The city-centre cordon was estimated to generate around $21m per annum in net revenues, which is far short of the around $150m per annum generated from the ARFT, so simply operating that scheme would do little for revenue, but of course it wasn’t designed to generate revenue, but to support reducing congestion entering, exiting and circulating within the city-centre.

Table 1 - The Congestion Question: Main Findings July 2020

The strategic corridor option was estimated to generate around $205m per annum, and assuming it would be introduced in combination with the city-centre cordon, there would be a combined net revenues of $223m per annum (the effect of one scheme would be to suppress some demand that would otherwise occur if only the other scheme was in operation).

The strategic corridor option cannot be implemented in full in one go.  The suggestion of pricing SH16 between Lincoln Rd and Te Atatu Rd, and SH1 between Greenlane and Ellerslie/Panmure is a feasible first step towards doing so, so it might be expected that the strategic corridor option is phased in over several years. Although these figures come from 2019, it is reasonable to take a conservative approach, as travel patterns in Auckland have changed somewhat since the pandemic. 

In short it means that the ARFT revenue cannot be quickly replaced through congestion pricing, assuming that congestion pricing is implemented with the objective to improve network performance as a primary goal, rather than revenue raising.

Key decisions

What matters now is how congestion pricing in Auckland is advanced.  There are some big decisions to be made on governance, rate setting and use of net revenues. These will have a significant impact on the likely success of pricing and importantly, public acceptability and durability of pricing as a policy. A key element is how much decision-making will be up to road controlling authorities and how much will be up to central government either politically or administratively, from which there are some big governance issues:

1. How will legislation enable congestion pricing? 

Will it be general empowerment, case-by-case scheme approval or something else?

Existing legislation around tolling essentially requires Cabinet approval on a case-by-case basis following recommendation by the Minister. This is suitable for toll roads, which are specific sections of road with rates set to contribute towards infrastructure cost, and so are unlikely to need to be varied much, except to take into account inflation. For congestion pricing, there is a need to have some variability and flexibility in implemention.  Detailed Orders-in-Council specifying precisely where pricing points are, their hours of operation and price levels are unlikely to be suitable for effective congestion pricing.

An inner-city cordon may need some minor variations in the location of pricing points, and both the hours of operation and rates set will need to vary to manage demand effectively (and avoid pricing traffic during times of low demand).  Pricing, after all, works best in all sectors when it is flexible. History tells us that when prices are heavily regulated for goods and services, especially when pricing is intended to send signals around demand and supply, that it distorts usage, whether by underpricing demand (which is the status quo) or in overpricing (and reducing economic activity in an area).

However, caution should be exercised in simply providing general empowerment for road controlling authorities to implement pricing under certain conditions. International experience indicates that congestion pricing is very difficult to implement, primarily because it is easy to quickly undermine public confidence in the concept and the details of any scheme, resulting in overwhelming resistance and pressure to cancel. This has been seen in several occasions, notably Edinburgh, Manchester, the Netherlands (multiple occasions), Helsinki, Copenhagen and London (with removal of the Western Extension of the congestion charge). 

This is not to say that Auckland Transport, Wellington City Council, Christchurch City Council and Tauranga City Council couldn’t implement congestion pricing, or indeed NZTA, but it’s also worth remembering that when congestion pricing fails, it tends to kill the idea politically for many years. Edinburgh rejected congestion charging in 2005 after five years of development, and is only now again looking at the concept. Manchester rejected it in 2008, after considerable design work over the previous two years, and has no interest in reconsidering it.  Although many trump London as a success, the London Congestion Charge was expanded once and that expansion was rolled back three years later in 2010, and even today there is only talk of more congestion charging for the city (don’t mistake the Ultra Low Emission Zone, for which 97% of vehicles are exempt from paying, for congestion charging).  Local authorities are subject to the political whims of elections every three years, and given the timeframes needed to implement pricing, there is considerable risk that pricing could become a serious political issue if not managed effectively.  Bear in mind no NZ local authority has implemented road pricing before, and only Tauranga implemented tolls (albeit some years ago).  There are a long list of implementation risks that if not managed well could undermine congestion pricing not just in the first city that tries it, but in all others. 

Note also that despite the UK having had legislation generally empowering local authorities to implement congestion charging, only one outside London has actually done so: Durham. The Durham scheme was introduced before London’s and is in effect a small charge on driving in the tiny historic centre of the city.  Empowerment of local government to introduce congestion charging in the UK has largely failed, as none have had the political courage to do it, and of those that tried, they have proven incapable of developing and communicating a pricing scheme that would obtain adequate public acceptability. Indeed, the repeated failures of Edinburgh and Manchester to implement pricing has almost inoculated most councils to implementing it. Most recently it is Cambridge that has attempted to introduce pricing and, in no small part to the design it chose, it has repeated the examples of the other cities in generating enormous opposition to congestion charging for that city. 

Although it is possible to conceive of congestion pricing concepts for Auckland and other cities that do not charge the state highways, excluding them from any scheme is likely to be sub-optimal in managing traffic in those cities. Both Auckland and Wellington could have a “first-stage” pricing scheme implemented in the form of inner city cordons without pricing of the state highways, but the “second-stage” would inevitably need to include them. It is also critical that any road pricing scheme not negatively impact the state highways. In all cities congestion pricing is likely to be more effectively managed if undertaken jointly between NZTA as the State Highway manager and the relevant territorial authority managing the local network. 

For example, in Auckland, this means ensuring SH16 to the Ports of Auckland functions well. Of course if the first scheme in Auckland is actually to price segments of SH16 and SH1 as the Mayor of Auckland proposed late last year, then it is inevitable that it be undertaken jointly, as Auckland Transport does not (and should not) have the powers to price roads it does not manage.

The first congestion pricing scheme in NZ is likely to be in Auckland, so it is critical that it is designed to be effective without being punitive. It needs to have sufficient flexibility as it is introduced to make small adaptations quickly if motorists respond in unexpected ways which cause issues (such as congestion on alternative routes. There should be measurement of performance, in impacting travel times, trip reliability, net revenue collection and compliance, as well as wider economic, social and environmental impacts. London undertook such analysis for its first five years of operation. This is critical in building data on how to expand and adapt pricing and to mitigate any negative impacts.

It is far too risky to simply leave all of this up to a single Council without the necessary experience, particularly if its incentives are more around revenue collection than traffic management.

Auckland congestion pricing should be a joint NZTA/AT project. The Auckland Traffic Operations Centre is, for logical reasons, and this should follow on from that. It doesn’t matter if the first scheme in Auckland is a city-centre cordon or a strategic corridor, as the second scheme will be the other. NZTA is already expanding and renewing its tolling back-office system, which could provide the platform to deliver congestion pricing, although it will need to have a significant uplift in capacity for customer service.  

2. How is rate setting to be undertaken, and reviewed and updated over time? Is there going to be regulatory oversight to it?

To be effective in managing congestion, congestion pricing in NZ should follow the Singapore approach of setting prices to ensure a minimum throughput of average speed on priced roads, with the ability to review and revise (up or downwards) such prices on a regular basis. Singapore does it quarterly, with no regard at all as to whether it impacts net revenues positively or negatively. A similar approach would ensure traffic impacts are optimised, and public acceptability is as well. Having shoulder as well as peak rates, so that the price is not simply $0 at 0630 then $5 at 0700 will be important to avoid bunching of traffic before pricing kicks in, and to spread demand. This is not practicable if rate setting is done by Cabinet, so this needs to be devolved to a governance entity which is empowered to vary rates (with perhaps a cap applied), with some regulatory oversight over time.  In due course, multiple pricing systems in different cities ought to have an economic regulator ensuring that road controlling authorities are looking after the interests of consumers both in the prices they set and how they spend the money. 

3. Who decides what net revenues are used for?

In the UK, legislation determines that net revenues from congestion charging are used on local transport spending. In Sweden, central government decides in partnership with local government how net revenues will be used, and in Stockholm it was initially focused on funding a major highway project, and has since included funding for public transport projects. Oslo similarly has used revenue from its toll ring (which resembles a congestion pricing scheme although it is primarily designed for revenue) for various blends of road and public transport projects, but again, this was determined by central government in collaboration with local government.

If revenue is being raised from state highways, it may seem appropriate for NZTA to decide, following guidance from the Government Policy Statement. If raised from local roads, it may seem appropriate for the territorial authority to decide, albeit it would seem difficult to get public acceptability for pricing if such revenue were used for non-transport purposes or on projects or activities unrelated to those subject to pricing. There are clearly a wide range of options on how net revenues might be used such as supporting spending on capital projects or offsetting rates revenue for spending on local capital projects or local road maintenance or public transport subsidies. A more innovative solution would be to pay a dividend to Auckland householders from congestion pricing, but this seems unlikely given the pressure from the Auckland Council and Mayor to find sources of revenue to spend on transport projects (and the Government is also interested in funding some of those projects as well).

What comes first though is who makes that decision. Compared to many other issues related to road pricing, relatively little thought has been given to this.

One chance to get it right

There are other issues of a secondary nature. Clearly the question as to what the first road pricing scheme in Auckland should look like is critical, but before that there are decisions on governance that are needed that haven’t been adequately canvassed, because they are difficult and controversial.  However they are needed soon, because until they are determined, progress cannot be made on detailed design, procurement and implementation of any congestion pricing in Auckland or elsewhere. It is possible for Auckland to be ground-breaking for NZ and indeed for many other cities with high-levels of private car use relative to other modes. However it is also possible for this to go badly wrong. For the last twenty of so years politicians have erred on fearing the latter, now NZ is on the cusp of making the last crucial step, they should address the remaining key issues and advance, bringing Aucklanders, and especially Auckland motorists with them. This Government has shown, by removing the ARFT, that it doesn’t see motorists as the enemy, it has the chance to show this further by implementing pricing in a way that, overall, delivers net benefits to them, and as a result net benefits to those who ride buses, bicycles and walk, and the businesses and communities they work and live in.

Many write about the successes in congestion pricing, few write or even know about the failures. Plenty of cities have advanced studies and developed proposals, and had the legal mandate to implement them, but pulled the ideas because of public backlash, largely due to key elements having either not been decided or having been designed in a way that doesn't deliver net benefits to those who pay. Auckland should not be on the list of failures.