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TOLLED BRIDGES REVIEW: PHASE ONE REPORT - 29 OCTOBER 2004:
1. Introduction
1.1 Context for Review
The Executive's Partnership Agreement includes the following commitment:
" We will improve access for our rural communities by reviewing existing bridge tolls in Scotland and entering into negotiations with a view to ending the discredited toll regime for the Skye Bridge a."
The Scottish Executive's Transport White Paper published on 16 June 2004 outlined the approach for the review of existing bridge tolls in Scotland:
" There will be a two-Phase review of tolled bridges. The first Phase will deal with all existing tolls. It will assess all existing tolls, including the way in which potential changes to tolls could help achieve our environmental and economic objectives of reducing pollution and congestion. The second Phase will include an examination of the broader issues relating to the management, operation and maintenance of the tolled bridges. This will also include an assessment of how the tolled bridges relate to the new regional and national transport arrangements." b
In his letter of 2 July 2004 to Phase One consultees ( see section 9 - Appendices), the Minister for Transport added that the information gathered from Phase One would help inform any early decisions that may be taken on tolls and indicated his aim of completing Phase One by the end of the summer. This Report presents the findings of Phase One of the Tolled Bridges Review.
The Tolled Bridges Review has been undertaken during a time of keen interest in the concepts of bridge tolling and road pricing in general. Edinburgh City Council is developing a congestion charging scheme, as part of its Integrated Transport Initiative, London is expanding its congestion charge scheme, and in July 2004 the Department for Transport published a report on the feasibility of a national road pricing scheme across the UK.
The interest in tolling and road pricing reflects a growing awareness that on some parts of the road network, the growth in traffic is causing significant economic, social and environmental problems that need to be addressed. These problems include time delays, unpredictable journeys, noise, poor air quality and motorist frustration. There are also impacts on public transport as buses get caught up in congested areas. It is not only congestion that is a problem, though - traffic growth also has implications for climate change, through its contribution to carbon emissions. Congestion charges and road tolls are thus used for a number of reasons. They can help to tackle congestion, raise transport revenues for infrastructure and address environmental impacts.
Bridge tolls are not necessarily the same as congestion charges or national road pricing - their objectives may be quite different. When the tolls were started on the bridges, they were all used to fund the construction and/or ongoing operation and maintenance of the bridges. However, given the traffic conditions we now experience in some parts of Scotland, it is important to consider the bridge tolls in this wider context. This is particularly the case because of the Executive's aspirational target of stabilising road traffic at 2001 levels by 2021 - which is ultimately about limiting road traffic's impact on the environment and cutting congestion.
1.2 Terms of Reference
In line with the Partnership commitment and the approach set out in the White Paper, the following Terms of Reference were determined for Phase One of the Tolled Bridges Review, each of which is addressed in a separate section of this report:
- Conduct a stakeholder analysis and develop a consultation process for both Phases of the review; (Phase One: section 2; Phase Two: section 8)
- A summary of existing toll regimes, identifying the history of each toll regime, financial performance and projected costs for future operations and maintenance; ( section 3)
- Modelling of the past, current, and future trends of traffic levels, differentiated by time of day/day of week/season (including identification of future developments that may impact on traffic levels) ( section 4)
- An analysis of the implications of removing the tolls; reducing the tolls; maintaining the status quo; increasing the tolls; differential toll by time of day, car occupancy, vehicle class etc; ( section 5)
- Identification of any significant environmental and economic issues (particularly pollution and congestion), that link to the tolls; ( section 6)
- Outline how options for changes to existing toll regimes may impact on Ministerial environmental and economic objectives and commitment to improve access for rural communities; ( section 6)
- Summary of the main policy, financial and legal implications of making any change to the tolling regime; ( section 7)
- Scope and project plan for Phase Two of the review to cover broader issues relating to management, operation and maintenance of tolled bridges and wider consultation. ( section 8)
1.3 Review Team
Phase One of the Tolled Bridges Review was led by the Executive's Roads Policy and Group Finance Division, with support from Executive officials with expertise in: economics; finance; accountancy; environmental issues; legal matters; road network management; PFI issues; and bridge infrastructure. A Project Manager was employed on a fixed term appointment to co-ordinate activities.
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