Sunday Times columnist calls for booze taxation to be spent on bigger pubs

Mike Rutherford in the Sunday Times writes that motoring taxation pays for roads

How can a motoring journalist get this far into a career without knowing how roads are paid for? Why does the Sunday Times give him money for writing articles with such factually incorrect information? At least Clarkson is a parody and often quite funny (Rutherford’s Swampy ‘joke’ is too weak for even the cheapest Christmas cracker). Or does Rutherford genuinely believe that motoring taxation should be spent only on roads? If he does, does he also advocate for other taxation ring-fencing: should the billions raised from sales of booze and fags be spent on bigger and better pubs, and swankier tobacco emporiums?

The tax on fags and alcohol goes into the national coffers, just as the taxation raised from motoring – or from incomes – also goes into the ‘consolidate fund’ i.e. direct to the Treasury. Taxation ring-fencing is heretical. The dedication of the revenue of a specific tax for a specific expenditure purpose is rare. The main UK example is the TV licence fee, a ring-fencing of funds for the BBC.

While it’s patently daft to argue that booze and fag taxes should be spent on improving pubs and building bigger tobacco shops, the exact same argument is wheeled out by some motoring organisations and by motoring journalists, all of whom ought to know better. Their argument that the taxes levied on motorists should be spent only on…motorists, is just as daft as requesting bigger pubs for drinkers.

Motoring orgs often wheel out the rogue stat that £47bn is raised in motoring taxes but only a fraction of this is “spent on roads”. It’s a favourite stat of the Road Users’ Alliance. The RUA has been using the same basic ‘only a fraction spent on roads’ stat since the alliance was founded in 2002.

“The Government raises almost £50 billion from motorists, and returns less than one fifth of this in spending which directly benefits the road user,” is the standard ring-fencing refrain from the RUA.

What the RUA fails to stress – an error repeated by motoring journalists on a frequent basis – is that the money generated by motorists is NOT a fund to repair roads and build new ones; it’s money that goes straight into the national pot, the Treasury’s Consolidated Fund, the public purse.

Airline passengers pay taxes when they fly from British airports but nobody suggests all this money should go to building more runways. Ditto for pubs and tobacconists. The pub analogy used above isn’t new. Winston Churchill railed against ‘Road Fund’ ring-fencing in much the same way. In 1925, when Chancellor, Churchill said:

“Entertainments may be taxed; public houses may be taxed; racehorses may be taxed…and the yield devoted to the general revenue. But motorists are to be privileged for all time to have the whole yield of the tax on motors devoted to roads. Obviously this is all nonsense…Such contentions are absurd, and constitute…an outrage upon the sovereignty of Parliament and upon common sense.”

The ring-fencing had been started by Lloyd George in 1909, with ‘road tax’ and fuel duties pumped into a hypothecated Road Fund. For 17 or so years, motorists paid into a protected fund which helped pay for some road crust improvements and a handful of road realignments.


But such ring-fencing was always controversial; to the Treasury anathama. Churchill wanted to quash the Road Fund. He – and the Treasury – plotted against it. Churchill famously made ‘raids on the Road Fund’ in the mid-1920s, all but killing it off. By 1937, the Road Fund – which had been fatally wounded ten years previously – was finally abolished. Amazingly, the concept of a Road Fund, paid for by ‘road tax’ (still, wrongly, believed to be a payment for the upkeep of roads) has lingered on in the folk memory of motorists.

Many motorists – perhaps even the majority? – still believe that ‘road tax’ exists, and demand that the duties paid by motorists should be ploughed into fixing potholes, widening dual carriageways and adding to the UK’s motorway network. In reality, everybody pays for Britain’s roads via general taxation.

Motorists do not pay for use of the roads, motorists are taxed on buying and using their vehicles. Vehicle Excise Duty is not a a fee to use roads, it’s a tax on emissions: cars which spew the most CO2 pay the most ‘car tax’. Cars which spew less CO2, pay less car tax. Cars in VED band A pay zero duty.

Motorists are not the only users of public roads. Pedestrians, cyclists, and horse-riders also use public roads. So do farm tractors but, even though they’re heavy and so damage roads, they do not pay Vehicle Excise Duty. They have to display tax discs, but these are issued free of charge. Motorists have been filmed attacking cyclists for “not paying road tax” yet there are no known cases of motorists attacking farmers for the same perceived ‘crime’. And nor do motorists attack band A cars, disabled drivers, the Royal family, or other “road tax dodgers” out there, of which there are millions.

UK motorways and trunk roads are paid for with cash supplied by the Highways Agency via the Department of Transport via the public purse via all UK tax payers; all other roads – that is, 87 percent of all the roads in the UK – are paid for by local authorities. Local authorities get some grant aid from national Government, but most of the cash for local roads is raised locally, via council tax. Non-motorists pay the same for roads as motorists.

[Come to think of it, those who pay the most council tax really ought to have more rights on roads than those in cheaper council tax bands. So, Merc drivers who live in big posh houses ought to have priority lanes on local roads and those motorists who drive cheaper cars from cheaper houses should be corralled in slow lanes.

And, of course, bankers and others on Britain’s rich list pay more tax than mere mortals so should get preferential treatment in NHS hospitals. Rich people involved in road smashes, and who need emergency care, by rights, should get that care long before poor people. But why stop there? Means-testing could be expanded to expensive drugs, too. Bankers should get life-saving cancer medicine when they need it because they pay more in annual taxation. Tis only fair. ]

Rutherford wrote that railways are subsidised but that roads aren’t. This is not so. There are many external costs of motoring. In effect, Britain’s motorists are subsidised to drive.

The 2009 Transport Select Committee report, Taxes and Charges on Road Users, calculated the total taxes and charges on UK road users as £48 billion per annum. The report quoted the typical annual expenditure on roads as about £8-9 billion.

In the same report, the Department for Transport estimated that the average marginal external cost of driving a car an additional kilometre is 15.5 pence allowing for the congestion (estimated at 13.1 pence per kilometre), infrastructure, accidents, local air quality, noise and greenhouse gases. This compares to 3.6 pence per kilometre paid in fuel duty and VAT.

However there are other costs to society as a result of our existing car-dependent transport patterns. In 2009 a Cabinet Office Strategy Unit report on urban transport attempted to quantify the costs of our existing urban transport patterns. Working with the Department for Transport, the Department for Communities and Local Government, the Department of Health and the Department for Environment, Food and Rural Affairs (Defra), they arrived at the costs shown here:

Costs of driving

The figures are based on the best available evidence sources, adjusted to 2009 prices. Where there is uncertainty or disagreement, they have stated the likely range as shown in lighter shading in the bars. The conclusions changed policy makers’ understanding of the situation. Previously, congestion had been thought to represent the majority of transport’s external costs to society. Now the combined costs of accidents crashes, air quality, physical inactivity, greenhouse gas emissions and noise at £27-38 billion per annum represent 71-78 per cent of the total.

The total cost for the English urban areas is estimated at £38-49 billion. Given that the Cabinet Office’s report states that this covers 81 per cent of the population, scaling up the appropriate impacts gives an estimate of £43-£56 billion for the whole of the UK.

It is important to note that the report makes no attempt to quantify the external costs of negative social impacts, despite referring to reduced social cohesion and interaction as a result of traffic. Yet research in Norway estimated that the cost of community severance (the ‘barrier effect’ due to transport infrastructure such as busy roads) is greater than the estimated cost of noise and almost equal to the cost of air pollution.

The Cabinet Office report also excludes the impacts of noise pollution on health, productivity and the ecosystem and does not attempt to quantify ‘quality of life’ impacts of the built environment. However it acknowledges that all these areas could represent significant additional costs, mentioning for instance an additional £4-5 billion for noise impacts on health and productivity alone.

Alternatively, estimates of the marginal costs of road transport provided in a report commissioned by the Department of the Environment, Transport and the Regions result in a higher total cost figure of £71-95 billion (in 2006 prices). This excludes the costs of physical inactivity and other as yet un-monetised costs such as severance effects and loss of tranquillity. According to the Campaign to Protect Rural England and Natural England, the monetary values for landscape and loss of countryside have not been calculated.

The Campaign for Better Transport extrapolates from the Government research on marginal external costs to reach a total cost of externalities of £70 billion–£95 billion per annum at prices for 2006.

The Sustainable Development Commission, a non-departmental public body (2000-2011) responsible for advising the UK Governments, concluded:

“So it would appear that the overall costs imposed on society by motoring outweigh the revenues obtained from motorists, probably very substantially.”

And the externalities of driving costs don’t include noise pollution (£3.1bn); air pollution (£19.7bn – not including CO2); water pollution (between £1bn and £16bn); or obesity (£2bn).

Subsidy for driving

But there are other, hidden subsidies, too. Donald Shoup, Professor of Urban Planning at UCLA in the US, estimates that providing free off-street car parking in the US cost a whopping $386bn in 2002 (in the same year, the US government spent $349bn on defence). As UK town planners operate to similar rules to their US counterparts – in that any major development has to have a set number of parking places, most of them unfilled but there ‘just in case’ – UK drivers get similar parking subsidies. No doubt it’s in the magnitude of many billions of pounds.

Taxes and Charges on Road Users of 2009 said hypothecation is “the establishment of a direct link between specific taxes or charges and specific expenditure. For example, taxes levied on alcohol might be earmarked for spending on hospitals. In the UK there is no such link for taxes.”

The report said:

“the Government opposes the idea of hypothecation of tax revenues. It argues that decisions about revenue raising and spending should be kept separate for two main reasons:

• if all income were to be hypothecated, it would create severe difficulties for those services that could not readily raise revenues, such as schools, hospitals, police and defence; and
• inefficiencies would result. For example, if a large sum was raised from road users, hypothecation would dictate that it was all spent on roads (or possibly other transport modes, such as buses), even if the public priority was for more investment in, say, education.”

There are no tax opt-outs
The argument about the Government raising £47 billion but returning “less than one fifth of this in spending which directly benefits the road user” is a weak one and motoring organisations – and journalists for respected national newspapers – do themselves no favours by wheeling out such an argument. Revenue ring-fencing is something vehemently opposed by Governments down the ages, and for very good reasons.

Motoring organisations and motoring journalists would be better off arguing about the many benefits of mass car ownership; the ‘we pay squillions, so ought to get squillions back’ case is easily swatted away, behind the scenes, by Treasury mandarins.

The money paid by motorists does not have to go back to motorists. If it did, all hell would break loose. Interest groups of all creeds and colours would start demanding “their” tax contributions should only go to fund “their” projects. Society does not work that way; cannot work that way.

There are no taxation opt-outs: married couples without kids cannot strike out the amount of tax that pays for schools; pacifists cannot strike out the amount of tax that goes on defence spending. And motorists can’t successfully demand that the money they give to the Government is given straight back to them in the shape of smoother, less congested roads.

Smoother, less congested roads would be wonderful for all road users, not just motorists, and such infrastructure – a shared national resource – is paid for by all taxpayers, not just motorists. The public highway is, by definition, for the benefit of the public, not a sub-set of the public.

Those who believe VED is fee to use roads sometimes use the seemingly-convincing ‘off-road’ argument:

“Doesn’t matter what you call it, VED/car tax/’road tax’, it’s a fee to use the public road because if you don’t pay it, you can’t drive on the public road. For instance, if I elect to use a vehicle off-road, I don’t need to pay VED. If I then choose to use the vehicle on a road, I would have to pay VED. If the vehicle emitted a certain amount of CO2, then yes that VED is currently free, but I would still have to get and display a tax disc in order to use the car on the road.”

But car tax isn’t a fee to use the road, it’s very much a tax on car emissions. Many cars, which use the public road, do not pay any ‘car tax’ because they emit less than 100gms of CO2. If car tax was a fee to use roads, electric cars and low-emissions cars wouldn’t be able to drive on UK roads.

Nor is it true that vehicles that will be driven off-the-public-highway – on private roads – don’t have to pay Vehicle Excise Duty.

VED is charged under section 1 of the Vehicle Excise and Registration Act 1994, as amended, “in respect of every mechanically propelled vehicle that … is used, or kept, on any public road in the United Kingdom”. For England, Wales and Northern Ireland ‘public road’ is defined in section 62(1) of the 1994 Act as “a road which is repairable at the public expense”; for Scotland a public road is defined in section 151 of the Roads (Scotland) Act 1984, as amended, as “a road which a roads authority have a duty to maintain”. However, the DVLA has powers to clamp vehicles that are not on the public road if they are in breach of the VED continuous registration requirements. The explanatory notes to the Vehicle Excise Duty (Immobilisation, Removal and Disposal of Vehicles) (Amendment) Regulations 2008 (SI 2008/2266) state:

The policy intention is to prevent evaders of vehicle excise duty from using off-road areas such as unadopted roads, commons, public car parks or roads maintained by Housing Associations to place themselves beyond the reach of the enforcement authorities.

Farmers can get ‘agricultural use’ exemptions from VED for their Land Rovers, so long as they only travel a mile or so on public highways. And in one special circumstance, cars which emit loads of CO2 can still drive on UK public roads without paying car tax. But only for a short distance. When a SORN (Statutory Off Road Notification) vehicle is going to a pre-arranged MOT test, and the vehicle has valid insurance for the journey, it can be driven on public roads without paying a penny for use of those roads.

Furthermore, if a car is registered in the UK but is never driven in the UK it still has to pay the UK’s Vehicle Excise Duty. So, a UK-bought car driven in France by a UK-born person who’s moved to France permanently, may never drive on UK roads but the car still has to pay VED. This is because it’s a tax on the car, not a fee to use the roads.


ipayroadtax toastie jersey

Road tax doesn’t exist. The ironically-named helps spread this message on cycle jerseys.