Attitudes to roads, congestion and congestion charging
Introduction
1.1 This article summarises people's attitudes to a number of issues relating to roads, congestion, and congestion charging schemes. The results have come from questions included for the Department for Transport in the Office for National Statistics' (ONS) Omnibus survey 1 for the months of March and July in 2003. The first period of fieldwork was carried out between mid March and early April and the second between mid July and early August.
1.2 Respondents were asked about their travel behaviour, their views on congestion and on solutions to congestion, as well as a number of questions about the London Congestion Charging scheme. In March the respondents were also asked whether they thought the road network had got better or worse over the last two years, and their expectations of change over the next two years. Respondents in March were also asked to respond to a number of statements about options and relative priorities for improvements to the road network.
1.3 Results relate to Great Britain unless stated otherwise. Where sample sizes are sufficient, the article reports any significant differences by factors such as age, gender, region of the country and frequency of mode use. Any notable differences between urban and rural areas are also included.
Key findings
- 42% of the public believed that the main cause of congestion is "too many cars on the road", while less than 5% believed it is due to there not being enough roads
- when respondents were asked to name the measure likely to have most effect on reducing congestion, "improving public transport" was the most selected, by 28%
- 67% believed that town centre charging would reduce traffic in areas where it was implemented, but 45% did not think this would be fair
- 54% of the public believed roads have been "getting worse" (however they chose to define this) in the last two years
- 43% of the public said they would "rather put up with congestion than pay a charge", while 48% disagreed with this statement
- 61% of the public agreed "it would be alright to increase the cost of motoring through taxation if the money were used to provide alternative ways of getting around"
- 63% of Londoners agreed in July with the statement "the congestion charge has been good for London"
- in London, 44% of the public did not know what was being done with the money raised from the congestion charging scheme
- support for congestion charging in respondents' local areas rises from 33% to 67% on the condition that public transport is improved before the scheme is introduced.
Roads and congestion
2.1 Over half (54%) of respondents in March said they thought Britain's roads had got worse over the last two years, while 16% thought that the roads had improved (Chart 1). Differences in the opinions of different age groups were small, except for those aged 16 to 24, who took a more positive view of the state of Britain's roads - 22% believed things had improved, while 35% believed things had got worse. Younger people tend to be more positive in their attitudes to transport, and this may also be influenced by younger people having recently started to drive. This being a positive situation for them may lead to them seeing the roads more favourably in general.
2.2 Optimism about the likely state of the roads in the next two years was limited in March, with 18% believing that things will improve and 43% believing things will get worse (Chart 2). Again, those aged 16-24 were slightly more positive than other age groups and opinion amongst this group was almost balanced, with 27% believing that things will improve and 26% believing things will get worse.
2.3 Respondents in March were asked for their views on whether congestion is acceptable so long as the delays are predictable. 58% of respondents agreed with this statement and 37% disagreed (Chart 3). There was less disagreement (31%) amongst people who drove infrequently or not at all although, perhaps not surprisingly, those who never drive were more likely to not have an opinion (11% compared with 5% of all respondents).
2.4 When asked what they thought are the three main causes of congestion, the majority of respondents in March selected from the showcard reasons relating to the way we use cars, rather than those relating to issues of road space (Chart 4a). 60% of respondents cited "too many cars on the road" as a main cause of congestion, compared with 8% who said "not enough roads". Other causes mentioned often were "too many parents driving their children to school" (37%) and "people driving with no passengers in their car" (35%). The role of public transport was also mentioned fairly often, with 30% of respondents saying "insufficient public transport" and 20% saying "public transport is too expensive".
2.5 Respondents were then asked to select a single main cause of congestion, with 43% selecting "too many cars on the road" (Chart 4b). The next most selected single reason (14%) was public transport being either inadequate or too inexpensive. 12% of respondents believed the main reason is "people driving with no passenger in their car."
2.6 When asked for their views on what three measures would be most effective in reducing congestion, the respondents in March mainly favoured actions to improve public transport (Chart 5a). The top three measures were improving public transport (48%), cheaper public transport (34%) and providing more school buses (28%).
2.7 When asked to narrow down their choices to select the single most effective method to reduce congestion, "improving public transport" was selected by 28% of respondents (Chart 5b). The next most popular single measure was "cheaper public transport", selected by 13% of respondents. All other single measures were selected by less than 10% of respondents, with most receiving insufficient support to be identified separately except within an "other" category, which contained the selections of 29% of respondents.
2.8 Views in July were fairly evenly split over the question of putting up with congestion or paying a charge to deal with it. 43% of respondents agreed with the statement, "I would rather put up with congestion than pay a charge," while 48% disagreed (chart 6). There was little variation in these views between those who drove more or less frequently, although those who never used buses were more likely to agree that they would rather not pay.
2.9 In keeping with respondents favouring improved transport alternatives as a way to tackle congestion, 69% of respondents in March agreed that, currently, "giving up travelling by car would be too inconvenient, even if it helped reduce congestion." (Chart 7). Eighty per cent of those driving most regularly (more than twice a week) agreed with this statement, while 51% of those who never drive and 60% of those aged 16 to 24 agreed. These differences perhaps indicate that those who already use other modes regularly are less reliant on the car even when they do currently travel in one. This may be due to different levels of awareness of the alternatives to driving, or may just reflect the necessity of the car for the kinds of trips made by those who currently drive very frequently. Other research suggests that over a third of people believe they could easily walk or cycle many of the shorter journeys they currently make by car.
2.10 Although building roads was seen as one of the less effective means of relieving congestion, 40% of respondents in March agreed that "the government should build more roads to relieve congestion" (Chart 8). However, 55% disagreed with this suggestion and 69% of respondents also agreed that "building more roads just encourages more traffic". In July, only 60% of respondents agreed that "building more roads just encourages more traffic" - however, there is a strong likelihood that the difference is due to order effects from the question being asked at a different position in the questionnaire.
2.11 Respondents in July were also asked to consider the impact of road widening schemes, and the concept of putting tolls on improved or new roads. 52% of respondents thought that "widening existing roads will just encourage more traffic", with 43% disagreeing. 54% opposed the idea of tolls on the use on new roads, with 40% supporting this proposal. There was a more distinct split in view on putting tolls on existing roads that have been widened, with 64% opposed to this and 30% supporting it. (Chart 9)
2.12 A closer analysis of the responses in July to the suggestion that "building roads will just encourage more traffic" shows that bus users were more likely to agree with this suggestion than non-users (Chart 10). The most regular car drivers were more likely to disagree than those driving cars infrequently or not at all were. Views were similar on the question of whether widening roads just encourages more traffic.
2.13 In March, 61% of respondents said they would be prepared to support increased motoring taxation, so long as the money were used to provide alternative ways to travel (Chart 11). Perhaps unsurprisingly, there was slightly more support amongst those who never drive (67%) and those who use buses (66%, whether using frequently or occasionally).
Congestion charging and the London scheme
3.1 Following on from the general questions in March about roads and dealing with congestion, respondents were asked to provide more detailed views on congestion charging and, in particular, the London congestion charging scheme. These questions were followed up in July by a further set looking at some more specific issues and ideas.
3.2 94% of respondents in March had heard of the London congestion charging scheme, and 69% believed that it would be effective in reducing congestion (Chart 12). The survey was carried out during the first month after the scheme was introduced, so the initial performance of the scheme can be expected to have influenced opinions. There were some interesting regional variations in views on the issue of effectiveness, with 28% of respondents in the South East believing the scheme would be ineffective, compared with 15% in London.
3.3 When respondents in July were asked whether they agreed that the congestion charge had been "good for London" (according to their own interpretation of 'good'), 63% of those in London agreed. 30% disagreed and 7% said they did not know (Chart 13). Unsurprisingly, in the rest of Great Britain, many more people (39%) did not know, but 45% still believed the charge had been "good for London", while 16% disagreed. More drivers (49%) than non-drivers (42%) agreed with the proposition.
3.4 Respondents in July were also asked about their views on how the charging scheme had affected traffic levels on roads inside the zone, just outside it, and in London as a whole. Although those outside London were less likely to have any actual experience of the traffic levels on these roads, there was interest nonetheless to see what views they had formed. The prevailing views, in both GB and in London specifically, were (Chart 14):
The roads within the zone were less crowded than before
Roads just outside were more crowded or about the same
London roads as a whole were about the same as before the charge was implemented.
3.5 61% of those in London thought that the roads inside the zone were less crowded, while 23% thought they were about the same and 2% thought they were more crowded. 41% thought the roads just outside the zone were more crowded, while 37% thought they were about the same. 53% thought that roads in London as a whole were about the same, 24% thought they were less crowded, and 9% thought they were more crowded. [Chart 14 needs to be labelled London/ rest]
3.6 Respondents in July were then asked what they thought was being done with the money raised from the scheme. It was again expected that those outside London would be less likely to know but there was interest in what was believed to be happening, and 59% of all respondents said they did not know (Chart 15). This fell to 44% in London, despite some extensive publicity campaigns referring to bus improvements. More encouragingly, 38% of Londoners mentioned public transport as one of the uses (compared with 21% of all respondents). There was a fair degree of cynicism amongst respondents across the country, with 15% making reference to the money being wasted, used for purposes other than promised, or even "going into personal bank accounts". A further 8% thought that the money would go into a general taxation pot and/or be used by the Government.
3.7 Respondents were asked in July 2 whether they would hypothetically support town centre congestion charging in their area, with London respondents being asked a slightly different question about whether do support charging in their area. 33% of respondents across Great Britain said they would support a scheme in their area, while 63% said they would not (Chart 16). London is included within these figures, but the level of support there was markedly different, with 59% of London respondents saying they do support charging in London and 39% saying they do not.
3.8 There was increased support in all areas if the money raised from such schemes were to be hypothecated in some way. Looking at Great Britain as a whole, 58% of respondents said they would support congestion charging in their area if the money raised were spent on buses or used to reduce other motoring taxes, with just under 40% opposed in each case. Support rose further under the condition of public transport being improved first, with 67% agreeing they would support a scheme and 29% disagreeing. 44% of respondents in March said they would support such schemes if the money were spent on trams, with the same percentage opposed.
3.9 In keeping with views on the London scheme, 67% of respondents in March believed that "charging people to drive in town centres at peak times will reduce the amount of traffic in those areas" (Chart 17). 84% of respondents believed that "charging people to drive on motorways at peak times will only divert traffic onto other roads", and 69% thought that motorists already pay enough to use their cars.
3.10 Although respondents believed charging schemes would be effective, opinion was more divided on whether they would be fair. 51% of respondents agreed and 45% disagreed that charging to drive in town centres is a fair way to reduce traffic, while 64% thought charging to drive on motorways at peak times would be unfair (Chart 17). This question was asked again In July, with little difference in views: 56% of Great Britain residents agreed with the suggestion that the concept was 'fair', while 39% disagreed (Chart 18). However, there was a difference between London and the rest of Great Britain, as 66% of Londoners agreed and 30% disagreed that such schemes are fair.
1 The Office for National Statistics’ Omnibus survey is currently carried out eight times a year. It uses a sample of 1,850 randomly selected adults, representative of the British adult population.
2 Results presented in Chart 16 do not include data from March, even though similar questions were asked. Due to an error with the administration of the questionnaire, this question was asked incorrectly in two regions, London and the East of England, and this invalidated the results of the question, "I would support congestion charging in my area". Overall, in the regions where the question was asked correctly in March, 31% of respondents supported the basic idea of a congestion charge in their area, and 54% opposed it. However, these results are incomplete and should not be relied upon - July results provide data from which reliable conclusions may be drawn.
