The current charging system - tax on fuel - doesn't do that, so why should the replacement?Any charging system would need to discriminate between driving on a quiet road where there is no alternative transport and driving on a heavily congested road through a residential area, past schools etc., and where there are plenty of public transport alternatives.
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There is a third option: accept that 6% increase in income tax. It would be revenue and payment neutral and would need no upfront investmentThe government has long been looking at a pay as you drive system. The loss of fuel duties is equivalent to around 6p increase in income taxes. There are two possible options. One is a simple mileage based scheme, that a number of US states are looking at. The problem with that is how do you know if those miles are driven on public highways or in another country - a major issue for Northern Ireland. The second is a GPS based system similar to pay as you drive insurance policies. This would allow you to do clever things like linking charges to routes, time of day, level of congestion etc. The problem is the cost of billing and collecting the charge. Fuel duty is incredibly cheap to collect and difficult to avoid. GPS would possibly cost 10-15% of the revenue collected and subject to massive potential avoidance.