For whom the Road Tolls? The M6 Toll Road Debate revisited.
There's been a fascinating debate in the Birmingham Post over the last few months over the M6 Toll road, fought out in the letters pages.
As readers will know, the M6 Toll road was opened in late 2003, with the stated public aim of reducing congestion on the M6 around Birmingham which was and still is often grid-locked (as I know well from going up and down to visit my mum near Stoke). Hence the road's original name, the 'Birmingham Northern Relief Road' (BNRR).
This new toll road was designed to take up to 100,000 vehicles a day but is now running at about one-third capacity and well below forecasted traffic levels.
The owner, Macquarrie Infrastructure Group (MIG), an Australian firm, has raised toll charges repeatedly for cars from £2 in 2004 to £5.30 today (a rise of 165%) and the M6 Toll is now one of the most expensive stretches of toll-road in Europe.
Not surprisingly, higher toll charges have meant fewer drivers as a simple demand curve would suggest from A-level economics. The latest figures are the lowest in the road's history, with the average daily number of motorists using the M6 toll at just 34,000 compared to a peak of 54,700 back in 2006, and some 35,800 a day when the road first opened back in 2003-4 as the Birmingham Post recently reported (see here).
No doubt MIG reckon that £5.30 is value for money, as - let's face it - you're not likely to see many other cars on the M6 Toll road.
The road's owners (publicly at least) attribute the decline to the wider economic climate and high fuel prices. That may indeed be a partial explanation for the decline in road use over the last couple of years (i.e. during the recession and onwards), but ignores the longer term downward trend.
Raising prices so dramatically over the last few years makes perfect sense for MIG in maximising its profits (or minimising its losses), but the key point is that this isn't the same as maximising wider social benefits, including getting traffic off the M6 and easing congestion.
In fact, MIG may well want to see wider congestion so as to encourage drivers on to the M6 Toll and hence pay high prices. Indeed, back in 2005 MIG's CEO Steve Allen was reported in an Australian newspaper stating that "what we need is to slow down the M6".
An early Public Private Partnership agreement set up by the Tories and agreed by Labour saw MIG (through Midland Expressway Ltd) effectively given 50 years to set and collect tolls before the road reverts to public ownership. Critically, there is no regulatory cap on prices (unlike when the utilities were privatised in the UK and subjected to what was called 'RPI minus X' regulation). No wonder toll charges have gone up so much.
So what's to be done? One option is to do absolutely nothing and to let the M6 get more and more congested. Faced with longer delays, some drivers may then decide to switch to the M6 Toll and pay the toll charge. That would, of course, suit the monopoly provider (MIG) who would be laughing all the way to the Bank of Australia, but not the wider West Midlands economy.
Another option, favoured by the 'National Alliance Against Tolls' (NAATs) is to nationalise the road, as Derek Bennett succinctly suggested in his recent letter to the Post. NAATs reckon that £1 billion could bring the road into public ownership. That could see the M6 Toll road available to drivers for free or at much reduced toll charges.
But would MIG be willing to sell, and what would be a 'fair' price? And could a hard-pressed Treasury find a billion quid? I doubt it when that sort of money could be spent on other socially useful infrastructure projects - like revamping New Street station. The latter point was made forcefully by Gerald Kells in his letter to the Post last week.
An alternative to nationalisation might be to regulate the price, so the monopoly owner is forced to set a price that maximises throughflow of traffic on the M6 Toll road rather than its profits. That in turn might require an annual subsidy of sorts to get the price down.
Nationalisation or regulation both have costs attached. But doing nothing is not an attractive option. Assuming that a private company operates in the public interest is simply naïve, as the whole episode shows.
More broadly, we need a more joined up and intelligent approach to transport policy, including more investment in alternatives to road, starting with HS2 and further investment in our railways. That would also have the benefit of boosting the sluggish economy.
And if the coalition government objects on the grounds that there's no cash for such investment given the need to clamp down on the deficit, then perhaps we could look at Lord Skidelsky's ideas for a properly funded and empowered Green Investment Bank.
Skidelsky has made the key argument that a limited fiscal commitment by the government of around £10bn in subscribed capital, with contributions drawn down over four years, would allow such a bank to leverage that funding through issuing a new class of bonds, thereby enabling enough spending to offset much of the public spending cuts planned by 2015. That would help stabilise the economy and invest in our infrastructure.
Of course, there's one argument against such a new investment bank, as my fellow Post blogger Councillor John Clancy pointed out in a question to Ed Balls at the latter's Aston University lecture last week: why not turn one of the existing nationalised banks into an investment bank, rather than setting up a new one? A fair point, Councillor.
But coming back to the M6 Toll Road, I'd argue that nationalisation is a bit of red herring. Instead we could regulate the road owners and impose a cap on MIG's charges. And rather than spending money on nationalising the road, we could make a decent commitment to a new green investment bank that through leveraging could dramatically enhance our broader infrastructure in the West Midlands and beyond.
Professor David Bailey works at Coventry University Business School.
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why dont they reduce tolls for a couple of months and see if they get more traffic.at least they could offer a season ticket at a reduced rate.It is unfair that this road is too expensive for the general puplic to use.No doubt HS2 if built will be the same.
Unfortunately , the great Brtish public has been used to using our motorway network " free at the point of use ". If there was strong evidence that national road pricing does not work, then surely this is it. We are not going to break the habit of a lifetime.
As far as HS2 goes, it is designed to solve a similar issue ( congestion ), and also bringus into line with EU rules on interoperability, for which the UK is facing potential court action in the EU courts if not acted upon. This fact is not lost on the stopHS2 campaign directors, who appear to have banned the very mention of that topic in their own media. Birmingham to Paris in under 3 hours by rail seems a very attractive proposal, particularly when you see the number of French expats setting up business in London as a result of Eurostar.
Unfortunately , the great Brtish public has been used to using our motorway network " free at the point of use ". If there was strong evidence that national road pricing does not work, then surely this is it. We are not going to break the habit of a lifetime.
As far as HS2 goes, it is designed to solve a similar issue ( congestion ), and also bringus into line with EU rules on interoperability, for which the UK is facing potential court action in the EU courts if not acted upon. This fact is not lost on the stopHS2 campaign directors, who appear to have banned the very mention of that topic in their own media. Birmingham to Paris in under 3 hours by rail seems a very attractive proposal, particularly when you see the number of French expats setting up business in London as a result of Eurostar.
Eggshell; the point is that it may be in MIG’s interests to charge a high price to maximize revenue – so why should they want to reduce prices? (i.e. price elasticity of demand is elastic; higher price = lower total revenue). The important things is that the private interest is not the same as the public interest.
Gary – your point really refers to the need for a ‘joined up’ transport policy! Yes Paris in 3 hours does seem attractive…
Eggshell; the point is that it may be in MIG’s interests to charge a high price to maximize revenue – so why should they want to reduce prices (i.e. price elasticity of demand is elastic; higher price = lower total revenue).
Gary – your point really refers to the need for a ‘joined up’ transport policy! Yes Paris in 3 hours does seem attractive…
Stilton, almost: you mean inelastic demand, perhaps? i.e. lower price = lower total revenue? But your point is right: the private interests of the firm don't coincide with the wider public interest/s, hence the possibility of effective regulation improving the situation.
David Bailey's makes an elemental mistake about the M6 Toll. He assumes that making it free would reduce congestion on the M6. If he looked at where traffic is going in detail (and all this was evidenced at the Public Inquiry) he would see that reducing or removing the toll would not transfer into reduced congestion on the M6, except over a very short period.
There are some roads running parallel that might benefit but increasing the traffic to vehicles a day would add congestion to roads that link into the M6 Toll.
I disagree, Gerald. Unless you’ve discovered a new law of demand, then lower prices (and I didn’t say a zero price) would equate to more traffic using the M6 Toll and less traffic on the M6 in as far as some traffic can switch over (i.e. it is not going on a very different route where the M6 toll is not of use). Your point about feeder traffic to the M6 Toll is valid, but doesn’t actually back up your key argument.
Where I do agree with your recent letter is the need for a better understanding of wider transport needs and the importance of alternatives to road – i.e. better public transport including rail.
That would only be true, David, if the M6 and M6 Toll were simple competitors for traffic. Before the M6 Toll was built only about 20% of traffic using the M6 through Birmingham and the Black Country in the peak hours was going through the conurbation. Most of the M6 traffic was accessing the conurbation. With the M6 Toll taking some traffic from the M6 it is likely to contain even more local movements. Also since potential demand to use the M6 exceeds its capacity it has and would simply fill out to the pivotal point of 160,000 vehicles per day when it becomes unattractive.
You also have to consider that much of the M6 Toll's traffic was never using the M6 in the first place. It was on the A5 or on the M1 crossing over to Stoke, for example.
You have to look at the M6 Toll in relation both to the total West Midlands conurbation road network and to the various options for long distance travel. If you put those together it looks very much less attractive than if you act as if loads of M6 Traffic would hop onto the M6 Toll, a mistake which has been made throughout the public debate.
There is a particular issue with lorries and we argued at the Public Inquiry that the lorry toll should be pegged to car tolls because the concessionaire might discriminate against them to maximise profit. Unfortunately we were not supported by the hauliers, although they made a fuss after the road was built, so the then Secretary of State did not act.