Congestion Charging London Sarah Green Congestion Charging and Traffic Enforcement Transport for London

Contents Congestion Charging Scheme background Operation and enforcement Impacts of the scheme Scheme costs Re-Let Lessons Learnt

Central London Congestion Charging Zone The current Central London Congestion Charging Scheme occupies only 41 sq km in the centre of the city. The centre of London is not like the rest of the capital, let alone the rest of England. The charging zone covers the heart of UK Government, business, media and, until last week, banking. The existing scheme was designed to address the unique issues in central London.

Central London Congestion Charging Zone The original zone was introduced on 17 February 2003, and the zone was extended to the west on 19 February 2007. There were 165 entrance points into the original zone. There are now 277 entrance points into the extended zone. All of the entrance and exit points have cameras. In additional there are a number of cameras within the zone. There is a flat £8 all-day charge for driving into, out of, through or within the extended charging zone. There is no change if the vehicle is not moved during charging hours. There is no charge for driving along either of the two free-through routes (Park Lane, etc. and A40 Westway))

The Central London Scheme 40% of England’s congestion is in London Central London was the most congested area with average all day speeds of less than 9mph Despite 85% public transport usage, vehicular traffic was still a major problem in Central London The congestion persisted throughout the day – it was not a ‘peak’ commuter problem To tackle this and using the most reliable technology available at the time, an area charging scheme covering the whole working day was developed One of the most important points here is that even before the Congestion Charge started, most people travelled into central London on public transport. This meant that, with some augmentation, particularly to the bus network, the public transport infrastructure was in place to handle those people no longer travelling by car after the charge was introduced. Also key is that by the late 1990s congestion was so bad in central London, the public generally accepted that ‘something had to be done’. Others measures to address other issue had proven unsuccessful, and people were therefore prepared to consider a congestion charging scheme in London.

Charge payment Daily, weekly, monthly or annual payment for individual vehicle registration number Flat charge of £8 per day (was £5 until July 2005) until midnight Monday – Friday, 7am – 6pm (was 6.30pm until February 2007) Pay Next Day introduced 19 June 2006 Most standard charge payers (75%) pay by the day. Most residents (75%) choose to pay just over £200 for the full year – residents receive a 90% discount. Interestingly, moving from £5 to £8 charge made almost no difference to volumes of vehicles. Those who were prepared to pay £5 paid £8. The charge only operates during the working day. There were, and to some extent still are, too many people who occasionally forget to pay the charge and so receive a PCN. We will introduce automated payment, but in the interim in 2005 we gave customers an extra day to pay the charge, and that reduced our PCNs by 15% - costing us income but improving the service we offer.

Charge transactions by channel There are a wide number of ways to pay the charge: web, call centre, SMS, post and at over 20,000 PayPoint outlets across the country. Since the start of the charge we have seen a move away from the retail channel towards web. This reflects a broader move towards electronic bill payment. Pay Next Day is only available through web and call centre at present and this reflects the increase in call centre payment since mid-2006. The most popular way for very regular users is SMS – customers just have to register with us, then then can text us the last four digits of their credit card, and we’ll apply the charge that day to their vehicle.

Key exemptions and discounts Buses, coaches and minibuses Taxis and licensed minicabs Motorbikes / mopeds Military vehicles Emergency services Disabled persons Certain alternative fuel vehicles Breakdown and recovery vehicles Certain health service workers 90% discount for residents of zone Not everyone has to pay the charge. A large part of the consultation process prior to the introduction of the scheme concerned the specification of the exemptions and discounts from the charge. Exemptions - automatically exempt from paying the charge (identifiable by vehicle tax class, such as ambulances). Discounts - must register for discount having supplied relevant proofs, such as proof of being resident. Alternative fuel vehicles can be new or converted but must be on the Energy Saving Trust’s PowerShift register which ensures that the vehicles are at least 40% above the Air Quality standard of Euro IV. Exempt and 100% discount currently account for c.30% of the total daily traffic of 180,000

Number of active discount holders by type The chart shows the number of people who hold an active discount for each of the main discount categories. The largest group is Blue Badge – these customers can register up to two vehicles a day to transport a registered Blue Badge holder. Some 10,000 Blue Badge discounted vehicles travel in the zone each day. The increase in residents when the zone was expanded is particularly clear, showing that the western extension is more residential than the original zone. Albeit from a low base, the effect of the Congestion Charge on the uptake of Alternative Fuel vehicles is clear – with 4,000 of these vehicles now using the zone each day.

Enforcement process If a valid payment is not received for correct vehicle for the correct date of travel then the Enforcement process commences Cameras are located on all routes into and out of the zone as well as many sites within the zone Signs are placed at every entry and exit point and up to 17 miles away on main arteries into London A comprehensive network of road markings exist on the boundaries of and within the zone The current system is at its heart very simple. At the end of the charging day, the systems automatically compare the vehicle registration numbers of the vehicles that have paid for the previous day with the vehicle registration numbers of those that have been seen in the zone on the same day by the cameras. Any those that have been seen but have not paid (excluding those that are discounted or exempt) are sent a Penalty Charge Notice. We currently issue some 5,500 PCNs a day, equating to 4% of the vehicles in the zone each day. The new system being build by IBM will have much more sophisticated customer relationship management functionality, allowing features such as automated payment through credit / debit card.

Detecting vehicles Stockholm 2006 There are a number of different ways of detecting vehicles. We use cameras linked to Automatic Number Plate Recognition technology. Cameras will always be required as not every driver will pay the charge. In Stockholm they trialled using microwave transponders or ‘Tags’ placed in car windscreens that are read by roadside ‘Beacons’. This gives a very high capture rate, but there is a need to install the infrastructure, which in London means across 348 sites. Also the gantries that are suitable on Swedish roads or German autobahn would not be appropriate for London, hence we have trialled such systems on a pole and outrigger. Ultimately however cameras still provide the most cost-effective way to detect vehicles in London. Cameras in London TfL testing site Borough High St

Enforcement numbers Vehicle registration numbers observed by 1,360 cameras at 348 sites, located both on boundary and locations within the zone 1.45 million images are captured and processed every charging day - cameras linked to automatic number plate recognition (ANPR) technology Opportunity to make representation to TfL and appeal to an independent adjudicator There are a large number of cameras around the boundary and at so-called 'screen lines' (such as the bridges across the Thames) within the zone. Most vehicles pass several cameras in the course of their journey so the capture rate is very high - well over 90%. Since 2005 we have included photographs on the PCN . This has reduced the number of queries from motorists who were not sure if it was their vehicle in the zone. We were wondering if we'd get complaints about the fact that the people in the car can be seen – thankfully that hasn't materialised. Either no one drives around with someone they shouldn't – or such people always pay the Congestion Charge.

Vehicle number plate processing ABC 123 65% ABC 123 62% ABC 123 92% ABC 123 ABC 123 84% ABC 123 41% During the day the system constantly checks new images/ interpretations against those already stored By the end of the day only the best, highest quality images and interpretation progresses through to the next stage of the enforcement process Automatic Number Plate Recognition (ANPR) software scans every image for a vehicle number plate and stores this data with the image. From the 1.45 million images, only the single best image for each vehicle (the one that the system is most confident in percentage terms is a specific number plate) is kept. The rest are automatically deleted. Confidence ratings can be influenced throughout the day by a wide variety of factors such as weather conditions and light levels. Deliberate obscuration of the number plate is a criminal offence. Actual numbers are very, very low. Despite the plethora of adverts in newspapers and magazines back in 2003, there are no simple, spray-on chemicals to 'beat the cameras'.

Enforcement processing TfL Lists of number plates sent using DVLA WEE batch by 2am the second working day after the end of the charging day DVLA Name and address of keeper, VRM, and make, model and colour of vehicle By now we have a list of vehicle registration numbers that we believe may have not paid the charge. These are all sent to the DVLA who return the vehicle and keeper details for every registration number 5 hours later. These are then used to check against the image for every Penalty Charge before the PCN is issued. Details returned to TfL by 7am next morning

PCN issue and post checking Images and key data for every possible Penalty Charge is manually checked before issue Number plate, Make and Model of vehicle advised by DVLA matched against image Any “mismatch” rejected for further investigation or deletion It is important to manually check every PCN before issue. The number plates above had been mis- read by the ANPR system. Trained staff can very quickly compare, e.g. the captured image of a blue BMW 3 Series against the DVLA data to be sure that we are sending the PCN for the correct vehicle. It also addresses problems seen in the very early days of Congestion Charging – such as when a car transporter would drive through the zone and our systems would capture not just the number plate of the car transporter, but also all the number plates of the cars on the back - to which we would then issue PCNs.

Traffic impacts of Congestion Charging Central zone Western extension 21% reduction in traffic (4 or more wheels) entering the zone – has remained constant 70,000 fewer vehicles per day Bus patronage up, bus services performing better Little change in trips to central area with 50-60% moving to public transport 14% reduction in traffic entering extension 30,000 fewer vehicles per day Increase in bus passengers On the day that Congestion Charging started there was a dramatic fall in the numbers of vehicles entering and driving around central London. Five years on the effect is essentially unchanged, with 70,000 fewer vehicles in London every day. Bus patronage increased, in part because of the improvements to the service (to which Charging revenues contributed) and in part because the service was more reliable with 70,000 fewer vehicles on the roads. With most people moving to public transport and others walking, cycling or travelling out of charging hours, etc. there was very little decrease in the numbers of people coming into London – c. 5,000 fewer people out of a central London daily population of 1.5 million.

Average daily traffic entering charging zone During charging hours (07 Now we are going to look at the number and type of vehicles entering central London We also measure vehicles leaving central London and vehicles circulating – the patterns are similar The first three categories – cars and minicabs, vans and lorries and similar vehicles will generally have to pay the Congestion Charge, unless for example the car is used by a registered Blue Badge holder However, taxis, buses and coaches, powered two- wheelers will normally be automatically exempt. Pedal cycles clearly don’t need to pay, but we have measured the volume of all these vehicles, starting before the introduction of the charge. Normally Charge Paying Normally Non-Charge Paying

Average daily traffic entering charging zone During charging hours (07 In 2002, before Congestion Charging began, there was an average of 185,000 cars entering the charging zone every charging day Normally Charge Paying Normally Non-Charge Paying

Average daily traffic entering charging zone During charging hours (07 In 2003, after charging was introduced, this fell to an average of 124,000 cars entering the charging zone every day The effect seen on the very first day of charging was dramatic. The reduction in traffic continued, and traffic was seen to move must more smoothly within London. None of the problems that had filled the newspapers in the weeks leading up to the go-live materialised. Congestion didn't move to other areas of London or times just outside charging hours. People just changed how they travelled. Normally Charge Paying Normally Non-Charge Paying

Average daily traffic entering charging zone During charging hours (07 Since then the traffic volumes have been largely unchanged, with little difference caused by the shift from £5 to £8 in 2005 The decrease in cars between 2002 and 2007 is some 36% Since then car volumes have, if anything, decreased. There was a small reduction in chargeable vehicles of 4- 5% following the charge increase – clearly the vast majority of those willing to pay £5 were willing to pay £8. Normally Charge Paying Normally Non-Charge Paying

Average daily traffic entering charging zone During charging hours (07 Similarly there has been a 13% fall in vans and 7% fall in lorries entering central London since the introduction of Congestion Charging As expected the fall in commercial vehicle use is much less than was the case in cars – nevertheless it is clear that there has been a sustained reduction in such vehicles in central London since the charge was introduced. Normally Charge Paying Normally Non-Charge Paying

Average daily traffic entering charging zone During charging hours (07 In comparison vehicles types that would not normally pay the charge have remained broadly stable or increased – with buses up 31% and bicycles up 66% between 2002 and 2007 Taxis have increased by 7%. Motorcycles increased slightly then decreased. Currently they are 3% below the 2002 figures. Normally Charge Paying Normally Non-Charge Paying

Average daily traffic entering charging zone During charging hours (07 Congestion Charging led to a dramatic and immediate reduction in the volumes of traffic in central London – and profoundly changed the pattern of vehicles seen Five years on the effects of Congestion Charging on traffic are as significant as they were when the scheme was first introduced The picture in terms of traffic is absolutely clear. The picture in terms of congestion, which we shall come onto, is much more complex. Normally Charge Paying Normally Non-Charge Paying

Congestion Congestion in central zone was initially down, but has gradually increased despite reduced traffic levels: 2003: 30% down 2005: 21% down 2006: 8% down 2007: no change In early months of the WEZ, significant congestion reductions, but recent results show congestion now similar to pre-extension levels Traffic levels still reduced - increased congestion due to decreased effective capacity as a result of road works and road space allocation to improve conditions for other users Congestion is the measure of travel delay – it’s measured by comparing travel rates at night (when there’s very few vehicles on the road) and travel rates during the day (when there are many more). It’s effectively a measure of the time spent in stationary and slow moving traffic. Whilst traffic levels have been stable, congestion has worsened in central London since 2003. In the first year of charging there was a reduction in congestion of 30%. Since then, at first slowly, then more sharply from late 2006, congestion has worsened despite no increase in traffic. In the western extension we’ve seen the same impact happen even more quickly.

So why has congestion returned? Reflects a reduction in effective capacity of road network for general traffic Urban realm improvement schemes (e.g. Trafalgar Square) Pedestrian, cyclist and bus priority measures Increased road works by utilities (particularly water mains) and major developments (e.g. Scotch House Corner development in WEZ) Important to balance priorities – activity being undertaken to address congestion levels Trafalgar Square is now more pleasant to walk round. That 's because you can't drive round it. Road space has been given from drivers to people and pigeons. Any intervention that prioritises other users may impact on motorists - across a large number of schemes this can impact on congestion. More critically recently has been the utility and other works, particularly replacing London's water mains. These works need to take place - with 70,000 more vehicles London would be gridlocked. Work is in hand to address some of these other factors. Most of the people who gain from Congestion Charging don't actually pay it. People who walk, cycle or take a bus now have a safer or more reliable journey, but don't pay the charge.

Revenues Net revenues by law must be spent on transport Raised total of £268m in 2007/8 Scheme costs totalled £131m Net revenues therefore £137m Allocation of 2007/08 revenues was £112m - Bus improvements £13m - Roads and bridges £4m - Road safety £4m - Walking and Cycling £2m - Borough plans £2m - Environment The single biggest issue for the team managing Congestion Charging is to reduce the operating costs of the scheme. The scheme is expensive in part because it was the first of its kind on this scale in the world and also because getting people to pay each time they travel, particularly through a call centre, is much more expensive than automatically taking payment from a credit card or bank account. It’s very possible for us to save several tens of millions of pounds a year from these costs, and that is what my team are now working on. This will generate more net revenues for transport projects across London. The poster on the right is from an information campaign that we ran in 2005 to tell people how we spent the money.

Western Extension Consultation Mayor asked TfL to seek Londoners' views on the future of the Western Extension (WEZ) The consultation outlined three options: Keep WEZ as it is Remove the WEZ Change the WEZ Consultation finished on 5 October and results were strongly in favour of scrapping the Western Extension

Re-Let Contract with existing provider, Capita, ends in October 2009 Went through a Competitive Dialogue process seeking a company or consortium to deliver Technology Customer services Enforcement Re-Let provides an excellent opportunity to Make use of new technology to deliver the scheme Reduce costs Introduce further customer improvements TfL announced in October 2007 that IBM UK Ltd had been selected as the successful bidder After some initial problems with Capita in the period immediately after the original scheme went live, Capita has been delivering a very good level of service. With the original contract coming up for renewal, we were however keen to take advantage of new technology and put in place the lessons from building and operating the existing scheme. TfL has more experience in congestion charging than any organisation in the world. We were able to define a detailed technical and operational. Bidders were asked to respond to a specification that was over 2,000 pages long. IBM (in partnership with NCPS for enforcement) was the successful bidder. IBM bring experience from designing and operating the Stockholm road charging scheme.

Lessons Learnt from Congestion Charging Political commitment key Effective research and clear policy objectives Extensive public consultation and stakeholder engagement Strong project management Need for effective contract management Adequate public transport alternatives Effective traffic management Strong public information campaign Need for ongoing customer and impacts monitoring, stakeholder engagement and scheme improvements No referendum in London. People would have voted against. Just before its introduction was only time more people were opposed to charging than in favour. Scheme became much more accepted after it was seen to have been effective and the scare stories were seen not to have occurred. Need to be clear about objectives, and for these to be based on solid research. Need to be prepared to consult and to listen. These schemes are large and complex. Need strong in-house project management and contract management skills . People must have adequate public transport alternatives. Any scheme will have a range of traffic impacts (e.g. 4% more traffic on the boundary route in London) and these must be modelled and managed. Public Information was key to 1. Informing people how the scheme would operate; 2. Encouraging timely action (e.g. discount registration); 3. Ensuring those not affected (the vast majority of Londoners) realise this and are not panicked (flooding call centre); 4. Getting drivers to evaluate their transport options and plan accordingly (encouraging modal shift); and 5. Managing public acceptability of the scheme and its benefits. Finally, must be prepared to monitor the actual impacts - and amend the policy or the operational rules based on ongoing learning.