Can Rebates Foster Equity in Congestion Pricing Programs?

Congestion pricing improves economic efficiency, but it may lead to inequitable outcomes. A key policy priority in California is identifying ways to avoid the hardship of congestion pricing on low income or other vulnerable populations. This study uses data from a congestion pricing experiment in the Seattle metro area to examine the feasibility of using revenue from congestion pricing to compensate those harmed by the policy. Results indicate that the initial burden of congestion pricing is highly inequitable, with the lowest income drivers paying an average of 7 percent of their weekly income in congestion charges. There are also considerable differences in burdens within income groups. We show that policymakers face a tradeoff in ameliorating these two types of unequal burdens. Returning an equal fraction of the toll revenue to all drivers can make a policy progressive on average, but doing so leaves many drivers either overcompensated or under-compensated. We then show that while compensation packages based on basic demographic information could improve targeting, many low-income drivers would be left with large proportional burdens because of the fundamental difficulty in predicting individual-level tax burdens. Survey data on travel behavior from Seattle and California metro areas show that the difficulty of designing equitable transfers would be similar in the California metro areas most likely to consider adopting some form of congestion pricing.