John Prescott hastily assured an angry road lobby yesterday that cities would have to consult the electorate, through a referendum if necessary, before introducing congestion charging.
The deputy prime minister and transport secretary, to demonstrate that the government was not about to penalise motorists, told the RAC, the AA and other transport groups that congestion charging would have to pass three tests before he approved schemes.
Apart from thorough consultation, each city must have public transport improvements in place and an efficient electronic charging system that has been properly trialled.
Mr Prescott promised that the government was also reviewing 37 road building schemes, including 19 bypasses, which have been included in its road review at a cost of £4bn over seven years.
He had asked the highways agency to see if any more projects could be brought forward and was still waiting for a decision. More money could be made available, but there was no guarantee until after the budget in April.
The chancellor, Gordon Brown, has agreed to end the 6% fuel duty escalator and ringfence any real increases in road fuel duty for roads and public transport.
Mr Prescott's meeting was to inform the roads lobby what will be in his transport bill, expected to be published tomorrow. He underlined what was always the case: that moves to tax the motorist are at least four years away and can go ahead only if local people vote for change.
"In future there is going to be more for motorists to cheer about. This is not a u-turn but an acceleration down the right road. This gear change is made possible by the radical decision to allow road user charges and parking levies at local level to be gathered solely for better local transport."
He said traffic had doubled since 1974 and could rise by another 50% in the next 20 years. That was the equivalent of 6m extra cars on the road, "so doing nothing would be the worst possible option for the motorist".
He promised to increase spending on road maintenance by 20%.
He claimed that in the first year of government he had fast-tracked five road schemes, among them the M2 widening and completion of the Manchester motorway box. Work on the Birmingham northern relief toll road, privately funded, was well in hand.
Mr Prescott defended the government from "a lot of regrettable and misleading comment" about congestion charging. "So far 27 local authorities have expressed an interest, and the proceeds must be ploughed back into better local transport, as you have requested," he told the road lobby.
He would have to be satisfied that cities like Edinburgh, Leeds and Bristol had provided "significant public transport improvements. That means, outside London, I do not envisage widespread charging schemes for at least four to five years."
Referring to the comment of Ken Livingstone, on the shortlist to be Labour's candidate for mayor of London, that congestion charging could be in place by 2001, Mr Prescott said studies showed that no satisfactory scheme was feasible before 2003, or before 2005 for an electronic scheme.
He also made clear that the government could not impose a target for reducing traffic levels. It was required to do so, "but no country in the developed world has cut traffic while its economy is growing".
Mr Prescott's legislation will enable local authorities to press ahead with congestion charging but only if they wish. Several, including Manchester, are doubtful about going it alone; they would want surrounding authorities to join in.
John Redwood, shadow transport secretary, said Mr Prescott's strategy was wrong. "He has pursued a vicious vendetta against the motorist and doesn't seem to understand that people need their cars to get around."
The government should be trying to encourage better alternatives so that people had choice. "It was a great Labour lie that they were going to improve public transport so that more people were willing to use it. This has not happened, so they have decided to tax us off the roads."
Michael Moore, Liberal Democrat transport spokesman, said: "Government policy is crunching into reverse in the face of hostile public opinion. Mr Prescott has failed to convince motorists that he will make investment available to provide an alternative to private cars. Initiative after initiative is being pushed on to local authorities without clear political leadership or adequate resources."
The Council for the Preservation of Rural England said: "The government needs to stand firm without shifting the emphasis away from roads and traffic problems. Transport policy has to have a clear sense of purpose."
Road projects in Prescott's fast lane
• Birmingham northern relief road A toll bypass through West Midlands
• A2/M2 widening Part of Channel tunnel rail link package in north Kent
• M62/M606 link roads Improved motorway access in Bradford area
• Upgrading of South Midlands trunk roads Areas between Luton, Banbury, Leicester and M1
• Weald and Downland Package of relatively uncontroversial roads with local backing in Kent and East Sussex
• A40 west London approach Improving access from the west
• Cumbria-Bradford Upgrading of trunk roads between Newby Bridge and Bradford
• Possible widening of M25 to 10 lanes between Heathrow turnoff and the M23 to Brighton.
• A564 Derby southern by-pass Final section of road relieving congestion on A50
