Report to the Mayor on Congestion Charge Changes
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Changes to the Congestion Charge Report to the Mayor on the consultation December 2018 Contents Chapter 1. Introduction ..................................................................... 4 1.1 Purpose of this report .................................................................................... 4 1.2 Structure of this report ................................................................................... 4 1.3 Congestion and air quality in London ............................................................ 6 1.4 Scheme Order changes ................................................................................. 7 1.5 Summary of recommended modifications to consultation proposals ............. 9 Chapter 2. Description of the proposals ....................................... 10 2.1 Introduction .................................................................................................. 10 2.2 Development and history of Congestion Charge ......................................... 10 2.3 Summary of proposals ................................................................................. 11 2.4 Impact on traffic ........................................................................................... 14 2.5 Integrated Impact Assessment (IIA) ............................................................ 15 2.6 Other changes to PHV licensing .................................................................. 27 Chapter 3. The consultation process ............................................. 28 3.1 Introduction .................................................................................................. 28 3.2 Publicising the consultation ......................................................................... 28 3.3 Consultation materials & channels for providing responses ........................ 30 3.4 Analysing the outcomes of the consultation ................................................ 31 Chapter 4. Consultation results ..................................................... 33 4.1 Introduction .................................................................................................. 33 4.2 About the respondents ................................................................................ 33 4.3 Respondents ranking of the importance of the proposals ............................ 40 4.4 Campaigns and petitions ............................................................................. 45 4.5 How respondents heard about the consultation .......................................... 47 4.6 Respondents views on the quality of the consultation ................................. 47 Chapter 5. Responses to issues raised ......................................... 49 5.1 Introduction .................................................................................................. 49 5.2 Issues raised about the principle of reducing traffic in central London ........ 49 5.3 Issues raised about the proposed removal of the exemption to the Congestion Charge for Private Hire Vehicles ........................................................ 72 5.4 Issues raised about the proposed replacement of the Ultra Low Emission Discount to the Congestion Charge with a new Cleaner Vehicle Discount ......... 140 5.5 Issues raised about the proposal to withdraw the CVD entirely by 2025 ... 162 5.6 Issues raised about the proposal to expand the Congestion Charging zone boundary at Old Street roundabout and other issues .......................................... 171 5.7 Issues which were concerned with the proposals more generally or in a non- specific way ......................................................................................................... 175 5.8 Issues which were not related directly or indirectly to the proposals ......... 200 Chapter 6. Conclusions and recommendations ......................... 201 List of appendices (attached separately) Appendix A: Examples of consultation publicity Emails to publicise the launch of the consultation Press advertisement Statutory Notice in the London Gazette TfL Press Release List of stakeholders invited to respond to the consultation Appendix B: Consultation materials Summary Page Why replace the Ultra Low Emission Discount Why remove the exemption for Private Hire Vehicles Additional changes to the Congestion Charge Consultation questionnaire CEPA Report ‘TfL-PHV Congestion Charge study Integrated Impact Assessment Scheme Description & Supplementary Information Document Appendix C: Additional analysis Summary of responses from stakeholders Map of respondents who identified themselves as PHV drivers and ULED registered Codeframes Appendix D: Oxera report Appendix E: CEPA response to Oxera and Labour Group Appendix F: TfL response to Labour Group Appendix G: TfL response to AL alternative proposal Appendix H: Example vehicles eligible for CVD 1 & 2 Appendix I: Stakeholder meetings Chapter 1. Introduction 1.1 Purpose of this report 1.1.1 To tackle London’s congestion and poor air quality, Transport for London (TfL) has developed proposals to change the Congestion Charging scheme. The most significant changes are: replacing the Ultra Low Emission Discount (ULED) with a new phased Cleaner Vehicle Discount (CVD); and removing the exemption to the Congestion Charge for most Private Hire Vehicles (PHVs) – designated wheelchair accessible PHVs would retain the exemption. 1.1.2 Alongside these proposals, TfL also proposes a minor change to the boundary of the Congestion Charging zone at Old Street and minor administrative changes to the rules of the scheme. The consultation proposals are described in further detail in Chapter 2 of this report. 1.1.3 The purpose of this report is to inform the Mayor of the results of a public and stakeholder consultation on these proposals which took place for a twelve week period between 6 July 2018 and 28 September 2018, in order for him to decide whether to confirm the proposals, with or without modification. 1.1.4 This report describes how that consultation was carried out, analyses stakeholder and public responses, and makes recommendations to the Mayor in response to the issues raised. It should be read in conjunction with the consultation material published by TfL1, which contained details of the proposals, as well as other information about their likely impacts and other relevant matters. Particular attention should be given to the Scheme Description and Supplementary Information Document in Appendix B that was published as part of the consultation material. 1.2 Structure of this report 1.2.1 Our analysis of the consultation responses and potential policy recommendations are presented for the Mayor’s information and to enable him to make a decision on whether to confirm the proposed changes. The structure of this report is as follows: • Chapter 1 – Introduction: The remainder of this chapter provides the background to the consultation, including the legislative framework and a summary of the proposals and recommendations • Chapter 2 – Description of the proposals: A summary of the proposals and their impacts • Chapter 3 – The consultation process: A summary of the consultation process undertaken by TfL 1 www.tfl.gov.uk/ccyourviews • Chapter 4 – Consultation results: The outcomes of the consultation, including the number of responses received and who they were from. • Chapter 5 – Responses to issues raised: Our response to the key issues raised specifically in relation to the proposals by theme, and our recommendations and conclusions • Chapter 6 – Conclusions and recommendations: Our overall conclusions and recommendations to the Mayor 1.2.2 This report also has a number of appendices pertaining to the process of consultation, the consultation materials and the responses to the consultation. 1.2.3 Appendix A and Appendix B contain examples of consultation publicity and the main consultation materials respectively. 1.2.4 As set out in Chapter 3, TfL commissioned Cambridge Economic Policy Associates (CEPA) to undertake a study on the potential impacts on the PHV market of the proposal to remove the PHV exemption, which was published as part of the consultation, and is at Appendix B. In addition TfL commissioned Mott MacDonald to undertake an Integrated Impact Assessment (IIA) of the proposals, which is also at Appendix B. 1.2.5 Appendix C is additional analysis of the responses to the consultation. 1.2.6 Appendices D – H should be read in conjunction with Chapter 5. These appendices are described below. 1.2.7 During the consultation, Addison Lee Group commissioned independent research by economic consultancy Oxera which they submitted as supporting evidence, and which challenges some of CEPA’s findings. This can be found at Appendix D. 1.2.8 TfL has subsequently commissioned further work from CEPA to consider points raised by Oxera. Ms Florence Eshalomi AM (responding for the London Assembly Labour Group) also questioned some of CEPA’s data. CEPA’s response to both submissions is attached at Appendix E. CEPA’s response focuses on the issues raised concerning to the methodology they used in producing their original report. 1.2.9 Elements of the submissions of Ms Florence Eshalomi AM and Addison Lee Group did not directly concern the CEPA work and have been addressed by TfL in Chapter 5 and also in Appendix F. Additionally, Addison Lee Group put forward an alternative set of proposals: Appendix G is TfL’s response to this. Appendix H is information about vehicle makes and models which comply with the new CVD. 1.2.10 The Mayor